Memorandum from Walsall Supporting People Services
(SPP 62)

 

Response to Communities and Local Government Select Committee call for evidence

 

	This is Walsall Supporting People's response to the Communities and Local Government Select Committee call for evidence. The response is formed of three parts based on the Committee inquiries' considerations:   a) the extent to which Walsall has, so far, delivered against the commitments and expectations of Local Authorities contained in Independence and Opportunity, and our views on how far the Government has delivered on its commitments as well, b) what Walsall considers to be the implications of the removal of the ring fence and what we have done to ensure the successes of the programme are not lost or services cut; and c) what current or potential opportunities are being explored in Walsall as a result of the changes in the funding mechanisms.
Summary
1	· Walsall has delivered, or is delivering, against all of the expectations, placed on Local Authorities, contained within Independence and Opportunity, with the exception of 'Work with [government] to develop a template for charters to enable independent living'. · Walsall believes that the Government has delivered, or is delivering, against 13 of the 20 commitments made within Independence and Opportunity. · Walsall has held several events to consider the implications of the removal of the ring fence, involving partners, stakeholders, providers and service users, and made a number of commitments to ensure the successes of the programme are not lost or services cut. This includes maintaining the level of funding for housing related support for the current Comprehensive Spending Review (CSR) period. · As an ongoing activity, Walsall is exploring and developing new opportunities that the change in the funding mechanism has allowed, promoting innovation and improvement in the delivery of services.
a) The extent to which Walsall has, so far, delivered against the commitments and expectations of Local Authorities contained in Independence and Opportunity, and our views on how far the Government has delivered on its commitments as well.
2	Walsall believes it is delivering, or has delivered, 19 of the 20 expectations, placed on Local Authorities, contained within Independence and Opportunity. The 1 expectation that we feel we have not fulfilled relates to the strategy's first theme, Keeping people that need services at the heart of the Programme, and specifically expects Local Authorities to 'Work with [government] to develop a template for charters to enable independent living'.
3	We understand that the development of 'Charters for Independent Living' was included within the development of Communities in Control and focused on improving the provision of information to service users and their communities. (See paragraph XX) Walsall Supporting People can demonstrate significant improvement in this area since the publication of Independence and Opportunity. We have produced a range of leaflets for service users, created a new, definitive Directory of Services, redesigned our web pages, published numerous service user and provider newsletters and delivered training to a number of front line organisations such as the Library Service, Citizens Advice Bureaux, Job Centre, Walsall Centre for Independent Living and Housing Association partners.
Expectations of Local Authorities   Theme 1: Keeping people that need services at the heart of the Programme   Expectation 1: 'Work collaboratively; to plan services at the sub-regional and regional levels - which is vital if they are to successfully meet the needs of mobile groups and deliver housing support services more efficiently.'
4	Walsall is a member of the West Midlands Regional Information Group (WMRIG) and contributes to the development planning of services across the region. Following completion of our 2008 needs analysis, a joint sub-regional need was identified and we are currently working in partnership with the Birmingham, Dudley and Wolverhampton programmes to commission a service for people with mental health issues and with complex needs.   Walsall, in partnership with Wolverhampton, is also co-ordinating a sub group of WMRIG, which specifically focuses on developing cross-authority services where there is an identified need in order to improve outcomes for service users and value for money of the services commissioned.
Expectation 2: 'Engage with, and learn from, the Individual Budgets pilots and other choice led personal funding mechanisms, and to consider how they might take forward a similar approach across the relevant service and funding streams in their area.'
5	Walsall has shared the outcomes from the Individual Budgets pilots with all our key partners, stakeholders, providers and service users. We have held various discussions on the implications of the outcomes and are actively engaged with the local People First Programme. We are working with partners and other service areas to create a single assessment process that will include the housing related support needs of those assessed. We are engaged with providers and partners in developing models for service delivery which promote the personal funding approach where appropriate.
Expectation 3: 'Work with us to develop a template for charters to enable independent living.'
6	Following discussions with CLG, we have been advised that the Charters for Independent Living were superseded by Communities in Control and the expectations to improve the provision of information to users. No formal template for the charters was ever developed.
Expectation 4: 'Ensure that there is effective communication with service users and to explain changes properly to service users.'
7	Walsall Supporting People has established and supports a Service User Planning Group, chaired by service users, who are involved with, and contribute towards, all aspects of the local programme. The service user chair is a member of both the Core Strategy Group and the Commissioning Body. The Planning Group contributes towards the development of all policies and procedures and receives regular training on the practices used to administer the programme. A number of service users have completed a nationally recognised Peer Assessor course, delivered by Tenants Participation Advisory Service (TPAS), and their assessment are now an integral part of our service review process. Measures are in place, developed in partnership with providers, to ensure there is effective communication of information to all service users in receipt of housing related support. We also utilise various methods of communication including our website, newsletters, information leaflets and promotional events.
Expectation 5: 'Consider how services will need to respond to local demographic changes within their regional housing strategies and sustainable community strategies.'
8	Walsall's Housing Strategy considers local demographic changes and is supported by our contribution to the Regional Spatial Strategy, Regional Housing Market Assessments and our Housing Needs and Demand Study. The Housing Strategy also considers the findings of our Supporting People Needs Analysis and links into our Housing Related Support Strategy. Walsall's Sustainable Community Strategy demonstrates how we understand the outcomes of the regional and sub-regional working mentioned above and how we will ensure services respond to demographic changes at a local level. We have also directly contributed to the Joint Strategic Needs Assessment (JSNA), providing information on housing related support needs and the impact our services have on other service areas, such as a reduction in slips, trips and falls or hospital admissions for respite care.
Theme 2: Enhancing partnership with the Third Sector   Expectation 6: 'Pass on three year funding certainty to Third Sector providers, explicitly including Supporting People contracts.'
9	Walsall has a number of Third Sector provider and have issued Supporting People steady state contracts of varying lengths, from one year up to 3 years. The term of the contract depends on the client group being service and the nature of the service offered. Contract durations vary to ensure that we can effectively respond to the changing needs of the local area.
Expectation 7: 'Comply with their commitments under the Compact, and with full cost recovery - commissioners and funders should be prepared to meet the full costs and reasonable overheads associated with Third Sector Delivery.'
10	As a commissioning service, Walsall Supporting People aims to ensure our services overheads and costs of delivery are met at around 15% of the overall contract value. However, we increase this level for Third Sector and smaller providers to 20% to ensure the sector is effectively supported in delivering services.
Expectation 8: 'Continue to support innovation, challenge and benchmark processes and costs against each other, to identify potential areas for further improvement.'
11	Walsall continues to demonstrate its' support of innovative services and has completed a commissioning round of short life contracts, whereby no service specifications were placed at procurement stage and providers were asked to provide 'ideas' for new services. Ten of these proposals were commissioned and have proven very successful in delivering measurable outcomes for service users; as a result, extending most of the contracts for a further 12 months. This approach to commissioning new services has been adopted again in an effort to increase the level of service provision in the area, support our aims to increase the number of jointly commissioned services and utilise the resources obtained as a result of efficiency savings.
12	On an annual basis, we refresh our benchmarking data to inform our Value for Money assessment. National and regional data is used to update costs and levels of support being provided. This information is used to challenge the levels of VfM provided by our services and drive up quality of housing related support. Our process are regularly reviewed, for example, we consider the outcomes achieved by a service, as well as looking at it's strategic relevance based on our current years commissioning priorities, it's performance against NI's and SPI's, the quality level achieved in the QAF and the value of the service, measured in cost per hour and average hours of support delivered.
Expectation 9: 'Ensure that their [LA's] providers have the level of support they need, including capacity building.'
13	Walsall provides on-going administrative support for our Supporting People Provider's Forum, offer all council operated training and development opportunities to provider organisations and continue to work on reducing the administrative burdens placed on providers, through the development of new workbooks and customised software solutions.
14	We proposed and supported a 'buddy' system at our Provider's Forum, whereby larger providers support smaller providers in improving their quality levels and achieve an improved score in their QAF assessments.
15	We provide regular refresher training sessions for providers, including support with QAF assessments, workbook returns and the outcomes framework, to capacity build new and existing staff.
Expectation 10: 'Continue to work with national organisations such as the National Housing Federation, HACT, Foundations and Sitra to support and build capacity in the sector.'
16	Walsall SP are represented on the regional Provider's Forum Chairs' Meetings and at the West Midlands Regional Information Group. We regularly attend various events, courses or consultations held by NHF, HACT and Sitra and rely and contribute to the activities they undertake relating to SP. We distribute opportunities, offered by these organisations, to our providers, partners and stakeholders.
Theme 3: Delivering in the new local government landscape   Expectation 11: 'Bring together and lead the wider range of commissioners, providers and stakeholders whose contributions are crucial for effectively delivering Supporting People.'
17	Walsall's Supporting People Core Strategy Group consist of commissioning managers from across health, social care, children's services, housing and probation. Representatives from key stakeholders, including community safety, the drug and alcohol team, the fire service and youth offending are also in attendance along with
	representatives from both our Providers Forum, Service User Planning Group. The Third Sector are represented by Walsall Voluntary Action, the co-ordinating organisation for the voluntary and community sector in Walsall.
18	The Core Strategy Group are the operational governance body of the programme, reviewing all policies, practices and activities conducted by the service and making recommendations to the Commissioning Body. The Core Strategy Group identifies the need and demand for services and instructs the SP service to carry our it's duties. Any commissioning or development of services must go through the Core Strategy Group who have oversight of all monitoring and performance arrangements, to inform decision making processes.
Expectation 12: 'Ensure that the remit and responsibilities of the Commissioning Body remain clear and up to date, and that the Commissioning Body is receiving timely and accurate information.'
19	Walsall Commissioning Body review both the membership and Agreement (Terms of Reference, Memorandum of Understanding and Conflict Resolution Protocol) on an annual basis, to ensure that activities are relevant and responsibilities appropriate. The Supporting People Service deliver regular capacity building events, to members, to ensure they are kept informed of developments in legislation and best practice and ensure decision making processes are robust.
20	All information presented to Commissioning Body is first reviewed by the Accountable Officer and approved by the Core Strategy Group. This process ensure that the information presented is accurate and delivery in a timely manner. CB members also sit on the 3 pillars of the Local Strategic Partnership, to ensure that the CB remains able to make informed decisions based on the developing priorities of the area.
Expectation 13: 'Make housing support part of their [LA's] coordinated approach to delivering for the most disadvantaged and vulnerable people in their areas - which means ensuring that Supporting People is integrated within their future Local Area Agreement frameworks.'
21	Walsall secured the inclusion of NI141 within our LAA in 2007/08, agreeing 3 year stretch targets of a 5% increase, in line with CLG requirements.
22	Following securing the inclusion of NI141 within our LAA, Walsall Supporting People conducted various exercises to identify and develop the contribution that housing related support services make to a number of indicators within the National Indicator set. The work identified that SP service could directly contribute to the outcomes of 9 of the indicators within our LAA. We also explored the contribution of housing related support services to Public Service Agreements (PSAs) and Departmental Service Objectives (DSOs). This information has been presented to partners and stakeholders and we continue to promote the contribution of SP services to the various priorities within the LAA.
Expectation 14: 'Adhere to full cost recovery principles for service providers in commissioning services.'
23	In line with the Walsall Compact, Walsall SP ensures that funding reflects the true cost of delivery of services - therefore, principles of full cost recovery are recognised. Organisations receiving funds should not be required or expected to subsidise, from their own resources, any services that they are contracted to provide. It is accepted that core management and administration costs need to be met if organisations are to operate efficiently and effectively.
Expectation 15: 'Prepare to deliver their Supporting People programmes through their new area based grant by April 2009, subject to CSR and pilot evaluation.'
24	Walsall SP have reviewed the outcomes of the pilot programmes included in the exercise of delivering the programme in an un-ring fenced environment. Information from these pilots and the implications in the change of funding regimes has been widely reported to our
	Commissioning Body, Core Strategy Group and other key partners and stakeholders.
25	Walsall SP have agreed with our LSP that the level of funding for SP services will remain the same for the CSR period, subject to the continued delivery of outcomes that meet LAA objectives. Evidence has been presented to partnership boards and scrutiny panels
26	Consultation has started on the review of Walsall's Eligibility Criteria, to ensure that we take advantage of the greater flexibility provided by the delivery of funds through the ABG, but ensure that resources are protected for the delivery of housing related support.
Theme 4: Increasing efficiency and reducing bureaucracy   Expectation 16: 'Make appropriate use of their local work to include and take forward the objectives set out in the SPVIP, particularly in relation to maximising value for money, and encouraging local projects where none are yet in place.'
27	In 2007/08, Walsall SP revised and re-applied Value for Money assessment approach to all services funded. The new approach considered strategic relevance, quality, performance and costs versus hours of support delivered. This round of assessments allowed the realisation of a number of efficiency savings totalling around 14% of the overall grant. These gains have allowed the commissioning of a number of new services to meet gaps identified in our revised Needs Analysis 2008, for example, a male domestic abuse service.
28	The Value for Money approach was reviewed again in 2008/09 to include the assessment of performance against outcomes achieved by a service. This is in line with the introduction of a local outcomes framework which contributes to the key outcomes details in the National Outcomes Framework. VfM assessments are carried out on each service on an annual basis, in line with our rolling review programme, to ensure that users are receiving the best possible services' and we are making effective use of the resources provided to us.
Expectation 17: 'Recognise the costs associated with their [LA's] information requirements, and to think about whether they really represent best value for money.'
29	From 2009/10, Walsall SP will implement a new Contract Management Framework to manage the services funded by the SP service. This framework brings together all the previous policies and procedures applied to SP contracts, including Value for Money Methodology, Performance Management Procedure, Annual Service Self Assessment, Decommissioning Policy and Appeals Procedure. The new framework has been introduced to streamline and reduce the burdens included within the management and delivery of a housing related support service.
30	The SP service have developed a new Quarterly Workbook for providers to submit performance and monitoring information combined. Previously, different processes were used to monitor PI data, outcomes, diversity information, complaints, evictions and Adult Protection complaints. These processes have now been streamlined and providers are required to complete only one workbook to collect all this information at once.
Expectation 18: 'Benchmark service costs, to identify areas where further potential improvements could be made.'
31	As detailed in paragraphs 26 and 27, our VfM approaches were reviewed to take into account changes in service delivery, guidance and best practices. Part of these reviews included the updating of local benchmarking information to feed into our VfM assessments. Data was gathered and analysed on a national, regional and local level. This information will be annually updated in line with the review of the VfM approach and continue to be used to assess services and identify where further potential improvements can be made.
Expectation 19: 'Work together regionally to benchmark administrative requirements and costs, to try to minimise these costs and free-up more money for frontline delivery.'
32	Walsall are part of the SP West Midlands Regional Information Group and sit on the Regional Benchmarking Group. We have used and shared data regionally to inform and develop our own benchmarking information and our VfM approach. We have benchmarked our administration costs ensuring that staffing levels to administer the grant are comparable to other administering authorities.
Expectation 20: 'Consider how they [LA's] could improve efficiency and administration through the application of Business Process Improvement and mobile technology.'
33	Walsall Supporting People are closely following the activities around CLG's Business Improvement Package and the National Process Improvement Project. We have worked with providers to improve business processes, i.e. redesigning methods for the collection of performance information to improve accuracy and efficiency and through the Value for Money processes.
34	To improve strategic commissioning activities, the Walsall Supporting People Service have become part of the Joint Commissioning Unit, overseen by the Local Authority and Health Service. Business processes are under review to improve contracting and monitoring activities and improve efficiency across the Joint Commissioning Unit.
Government Commitments
35	We feel that the government has delivered, or is delivering, 13 of the 20 commitments made in Independence and Opportunity. The following are the commitments that we feel are outstanding:   'Work with Local Authorities and providers to encourage the development of service user involvement plans, and 'Charters for Independent Living' to provide clear and accessible standards for Supporting People services.'   'Develop a model to help Local Authorities target people who would benefit from preventative services.'   'Minimise obstacles preventing good quality providers from across public, private and Third Sector organisations from competing fairly to deliver housing related support.'   'Invest in the skills of commissioners, improve commissioning from third sector, develop cross-Whitehall models for joint commissioning to ensure the sector can be certain of high quality commission, as set out in the OTS Third Sector Action Plan.'   'Work with Government Offices and local government to ensure that we have a clear understanding of any growth in existing service needs, and can also identify any new need for services in growth areas.'   'Put in place a national Supporting People Value Improvement Programme (SPVIP).' 'Establish via the national improvement strategy a process that will encourage and support all authorities in developing value improvement projects - working closely with regional excellence partnerships and with national provider representatives to ensure that service providers have enough appropriate local support to participate in - and take advantage of - any opportunities offered through local projects.'
b) What Walsall considers to be the implications of the removal of the ring fence and what we have done to ensure the successes of the programme are not lost or services cut.
36	The Walsall Supporting People Service have conducted a number of exercises to determine the implications of the removal of the ring fence, including consultation with key partners, stakeholder, providers and service users.
37	We have summarised 4 key implications to be considered and developed as a result of the removal of the ring fence. These are:   · The continued funding of housing related support services as existing contracts and commitments come to an end,   · The continued level of overall funding for the programme when the Sustainable Communities Strategy and Local Area Agreement are developed in future years,   · The impact of the Personalisation agenda on the delivery of SP services under a non-ring fenced environment and ensuring resources are used for housing related support and not diverted to subsidise other areas, and   · The opportunities to develop and increase the activities delivered through housing related support, that were previously restricted under the grant conditions, and fill gaps in service provision (discussed further in part C of this response).
Implication: The continued funding of housing related support services as existing contracts and commitments come to an end.
38	To demonstrate the contribution that housing related support services make towards other service areas, such as health, probation, social services, we worked with providers to understand the implications of the new performance framework and National Indicator Set. Working with the Provider's Forum, we identified all the indicators to which housing related support services made a direct or in-direct contribution. We followed this work with exploring further the indicators identified, their contribution to LAA priorities and delivery against PSA/DSO targets.
39	The objective of this piece of work was to allow providers the opportunity to demonstrate how their services contribute to a number of objectives other than just housing related support. With this information, providers have the opportunities to promote their services and raise awareness of their contribution to try and ensure funding is made available to continue the delivery of services following contract expiry.
Implication: The continued level of overall funding for the programme when the Sustainable Communities Strategy and Local Area Agreement are developed in future years.
40	Following the work described in paragraph 35, the SP service have met with key partners and discussed the implications of the removal of the ring fence and potential impact on the future of housing related support services. We presented the findings of this work and discussed where we could demonstrate a direct contribution to those indicators included within Walsall's Local Area Agreement.
41	Discussions between the Lead Officer and Walsall's LSP, led to a commitment from the LSP to ensure that the level of overall funding for the local SP programme will remain the same for the current CSR period. This was on condition that services continued to contribute to the priorities of the LAA and SCS.
42	In April 2010 the current SCS and LAA will be reviewed in light of the end of the CSR period in 2011 and the 3 year Local Area Agreement. It is expected that the SP service will need to demonstrate the contribution made to LAA priorities since it's launch in 2008. We will be expecting to secure the same level of, or increase, funding available for the continued commissioning of housing related support services.
Implication: The impact of the Personalisation agenda on the delivery of SP services under a non-ring fenced environment and ensuring resources are used for housing related support and not diverted to subsidise other areas
43	As in other areas, Walsall is in the progress of developing the implementation of personalisation across various service areas in the Borough. The SP service sits within the same council directorate, Adult Social Care, and is engaged in all consultation and development activities.
44	We are aware that not all SP services are suitable to be delivered through the personalisation model and are in discussions with partners and providers regarding which services are.
45	As a result in the change to funding arrangements, Walsall SP are currently reviewing the eligibility criteria for the delivery of housing related support services. The Personalisation project are involved in this review and will look at how we can develop our criteria to compliment the activities of personalisation, but ensure that resources are protected to continue the delivery of housing related support and not used to subside other statutory services, such as care or health.
46	To further compliment the implementation of personalisation of SP services, we are involved in the consultation taking place around the development of the local Single Assessment Process. This is to ensure that housing related support needs are effectively addressed and allow the correct identification of services required by users.
c) what current or potential opportunities are being explored in Walsall as a result of the changes in the funding mechanisms
47	Walsall Council, in realising the benefits offered by housing related support services, have designate the Supporting People service as a tier 1 preventative service, requiring all staff within the council's call centre to be fully trained on what services are available and how to make referrals into services. It is intended that this designation is developed further to offer a single point of access into housing related support services and provider greater choice for service users who may have previously been unnecessarily referred into statutory services.
48	As a result of efficiency gains made from effective service remodelling, we are utilising short term funding opportunities to capacity build the market place for housing related support services. We are inviting providers to propose new and innovative services, without placing restrictions on service type or activities delivered, in order to stimulate opportunities for different service delivery models.
49	As mentioned in paragraph 42, Walsall are reviewing the existing eligibility criteria as result in the change to the way the programme is funded. We intend that the revised criteria are applied for all existing and new housing related support services commissioned by the local programme.
50	There are two key themes that we are concentrating on in the review of the criteria. These are:   · How to ensure that resources allocated for housing related support are not spent subsidising statutory services or other LAA priorities now that the conditions on what the money can be spent on have been removed?   · How can we increase the number of people supported and develop the range of activities and types of services that can be delivered, to offer housing related support, now that the restrictions contained within the conditions on what the money can be spent on have been removed?
51	The work underway includes events with partners, providers and stakeholders to ask them how they believe the use of housing related support resources should be developed and the opportunities available with the grant conditions removed. We will also be meeting with service users to discuss how we may be able to develop and create new services to fill gaps previously identified as a result of the grant conditions, i.e. transport to and from GP appointments. We will also be inviting stakeholders to comment and contribute, via our website.
52	The outcome of this work and draft criteria are due in June 2009, with an objective to implement and embed these by the start of 2010/11.

 

May 2009