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Memorandum from Suffolk Supporting People (SPP 101)
Summary of Submission
· The introduction of the Supporting People (SP) programme has been extremely positive; it has driven up standards by introducing a robust contract management process; developed a strategic planning approach for an entire sector of public funding; ensured accountability; focused attention and resources on marginalised client groups that have traditionally been under-resourced; and diverted funding into preventative services that has demonstrated benefits by reducing the need for more critical intervention at a later stage. · We believe the removal of the Ring Fence does offer opportunities for innovation and will assist in making the programme more "visible" that will allow us more scope to promote the benefits of the programme. · In Suffolk we are facing a severe reduction in grant (5% per annum) and are preparing for this to continue in the next CSR, which means that we will be introducing a number of significant changes that will be challenging for all involved. · We are concerned that in a period where we are likely to see a tightening of public sector funding any reductions in the SP grant cannot be met by other commissioners, no matter how good the argument, and even worse as their budgets are cut will seek to find funding elsewhere. The real threat is that in having to prioritise their statutory duties they will have to reduce funding in areas such as SP which will have a disproportionate effect on the marginalised client groups that are primarily solely funded by SP.
1. In Suffolk we believe that the Supporting People programme has been extremely beneficial in improving the quality of services to vulnerable adults, and in improving strategic planning so that new and existing services are developed to meet future need.
2. Keeping people at the heart of the programme The contract management process ensures that the views of service users are a key component on any review of a service that is delivering housing-related support. This will be further developed through the revision of the Quality Assessment Framework and the culture shift in service delivery that we would expect to see achieved as a result of the personalisation of services.
3. We have set up a Service User Forum that is meeting regularly and has produced its own strategy and an action plan. The Commissioning Body approved the appointment of a Service User Development Worker to assist the provider sector prepare for personalisation and help to embed good practice into organisational practice. This post is currently being recruited and will be employed by a Third Sector advocacy agency.
4. The SP programme has a significant role to play in Safeguarding vulnerable adults as it has excellent links with housing and can reach those people that are living independently in the community. It also understands the often complex relationships between landlords, support providers and tenants and can therefore bring an added dimension to solving these issues. In Suffolk the SP team has conducted a number of POVA inspections both independently and with ACS colleagues.
5. Enhancing partnership with the Third Sector In Suffolk over 85% of our current providers (79 in total) are in the Third Sector. Our understanding and relationship with this sector is extremely good. We have invested much time in communicating, informing and listening to their concerns.
6. It is important to note that, prior to the Supporting People programme, funding for services such as Womens Aid refuges was not secure, and such organisations were reliant on a combination of Lottery funding, voluntary contributions, and any LA grant funding available. The Supporting People programme has brought an increased stability to these services through regular, long-term funding, and as a result has enabled providers to concentrate on supporting their clients, and improving outcomes.
7. The success of our approach can be evidenced by the lack of appeals we have with providers in the service review process, and also in our commissioning approach. In 2008 we tendered for a county-wide service with a contract amount of almost £2 million and at the time there were 19 providers. These providers were understandably concerned about the implications of a competitive tender but we ensured through the Tender Evaluation Process that local knowledge and diversity of provider would be acknowledged. In the end a consortium of 6 local and national third sector providers won the bulk of the contract and a sole third sector provider the remaining area. The success of our approach was recognised as good practice by the Housing Association Charitable Trust. [1]
8. We have an established Provider Panel that elects its members to ensure appropriate representation by client group and type of organisation; this meets regularly. We also hold an Annual Provider Forum for all providers which is always well attended.
9. Delivering in the new local government landscape Although we are well integrated within some aspects of the LAA the SP programme is not as well known or understood as we would wish. Our concern about the removal of the Ring Fence is that the decision making bodies within the LAA will take decisions that will have an adverse impact on the programme and directly on vulnerable adults. This is even more of an issue for marginalised client groups that traditionally are outside of the statutory sector and have subsequently received much less resources, and have benefited enormously from being included in the SP programme that can act as a voice and also is part of the decision making structures. In the past this advocacy role has been undertaken by the Third Sector but the SP programme brought this knowledge and expertise into the main stream and we would not want to see it diluted.
10. In Suffolk we are making detailed preparations to cope with an anticipated reduction in grant (from £18m to £14.5 m) as a result of the distribution formula. In managing this reduction Suffolk is formulating and consulting on a future commissioning and investment plan that is due to be considered by the Commissioning Body in July 2009. As budgets become increasingly pressured it is an obvious concern that statutory authorities will seek to make savings where they can and will have little choice but to focus on their statutory duties before the provision of other services.
11. On a more positive note the removal of the Ring Fence does allow for more innovation and to provide more rounded services to meet peoples needs that I am sure we will be exploring. This does give us the flexibility to focus on our priorities in the most effective way within the limitations that will obviously be imposed as a result of our reducing grant.
12. The positive impact of the programme particularly in the marginalised sector can be demonstrated by the development of new and innovative services in Suffolk (Domestic violence outreach service; Offenders' resettlement; Supported lodgings, Gypsies and Travellers Floating Support Service: and an Enhanced support service for chaotic homeless people) which seek to address some of the housing and support needs of marginalised groups who previously had few or no services (details below).
13. The Supporting People programme has enabled the focus on marginalised adults to be developed. It is very much centred on services which provide support to prevent the escalation of issues, crisis and the need to access other higher cost services further down the line.
14. It is anticipated that, through these specific innovations with demonstrable outcomes along with the outcomes data from other mainstream SP services, the value of the programme can be shown and maintained within the LAA.
15. Examples of new and innovative services in Suffolk 15.1 Domestic Violence (DV) Outreach Pilot This project has been created to provide a support service to women who are experiencing DV in their homes. This is the first service of its kind in Suffolk and so will also be 'action research' to test if it is a sustainable approach. The outcomes from this pilot are to: o Reduce the likelihood of victims of DV continuing to suffer abuse through increasing the range of support options for victims of DV in Suffolk. o Empower victims of Domestic Violence who chose to stay at home by improving information sources and therefore an awareness of options available. o Increase understanding of why victims of DV might remain at home and what support they may need. o Enhance the Sanctuary Schemes currently being set up in Suffolk.
This two year Pilot commenced in December 2008. Demand for the service since its inception has already exceeded capacity.
15.2 Offenders Resettlement Service Pilot This service will provide support for Offenders. It will work with Offender Managers and Prison Resettlement staff .Getting offenders into settled and suitable housing can be viewed as the foundation to other parts of an offender's rehabilitation, resettlement and managing risk. The service will be provided at the Probation Offices in Ipswich, Bury and Lowestoft but will also be provided in clients own homes where appropriate. Target group: Priority 1: All offenders returning to Suffolk from prisons. Priority 2: PPO/s in the Community. Priority 3: Offender registered under the MAPP arrangements. Priority 4: Offenders at High risk of re-offending. Priority5: All offenders with accommodation issues linked to offending behaviour. Priority 6: All other offenders with accommodation needs. The outcomes from this pilot are to: o Prevent homelessness and the cycle of homelessness. o Enable prisoners leaving institutional care or the approved premises to access accommodation. o Reduce re-offending.
15.3 Supported Lodgings Pilot This is a scheme which enables young single people aged 16 and 17 years old to be offered accommodation in a home environment. This accommodation is provided by people who feel that they are able to offer a room in their homes, along with some level of support, to vulnerable/homeless young people. The outcomes from this pilot are to: o Reduce to use of Bed & Breakfast for 16/17 year olds. o Reduce the expenditure of Waveney District Council and St Edmundsbury Borough Council on bed and breakfast accommodation for Young Homeless People. o Enable Young People to live more independently and complete a programme of support. o Increase the number of young people aged 16-21 sustaining employment, community living and further education.
15.4 Gypsies and Travellers Countywide Floating Support Service Pilot The service will provide short term floating support to Gypsies and Travellers with accommodation and related support needs. This will include Gypsies and Travellers who are on unauthorised encampments, on authorised or private sites, in temporary accommodation or in bricks and mortar accommodation. The Outcomes from this pilot are to: o Provide signposting and referral service that increases take up of other services. o Provide support to improve access to suitable living conditions. o Enable service users to maintain physical well being and mental health through accessing services. o Support the provision for Gypsies and Travellers who lack basic amenities such as water or sanitary conditions on unauthorised sites.
15.5 Emergency Direct Access Beds Enhanced Support Service Pilot The service will be a one year Pilot project providing very short term accommodation and support to 6 clients to address their chaotic lifestyles. The service will also identify the barriers preventing these clients from accessing main stream services and assist in removing these barriers (by developing good working relationships). The Outcomes from this pilot are to: o Assist licensees to develop the capacity to access and maintain contact with other support services, leading toward eventually holding a tenancy. o Assist licensees to access more secure accommodation.
16. Increasing efficiency and reducing bureaucracy The SP programme in Suffolk is becoming increasingly integrated within SCC and is benefiting from resources and the input of other professionals. For example on personalisation we are working with ACS on extending the Common Assessment Framework and Resource Allocation System to include housing support. We are also involved in a number of joint initiatives that are rationalising and improving the delivery of services such as mental health, assistive technology and extra care housing.
17. Equally significant is the benefit to others in the county by having access to a team of experts that understand and are closely working with the housing sector and the Third sector. This is particularly useful in a two-tier authority that has no statutory duty for housing.
18. We have also developed a comprehensive contract management system that is used to cover all supported housing services irrespective of who is funding them. This ensures that we have a strategic overview of all services in the county. In addition the contract management culture of SP has noticeably delivered an improved standard of quality which can be evidenced and is delivering improved outcomes for service users but this is being threatened by the severe reductions in the Administration grant that could result in SP teams being disbanded and their expertise used elsewhere. This is a great fear of the Third Sector which has invested time and energy in working with a team of people to develop an expertise in their field and now they are in danger of losing that contact.
19. Regional Impact Ten administering authorities delivering the Supporting People Programme in the East Region undertake collective work through a body known as Supporting People in the East Region (SPERG). The group adds value to local working and has developed a Regional Strategy that sets out what SPERG is aiming to achieve by working collectively.
20. The Programme received £121 million funding in 2008/09 and in this region contracts with over 400 providers delivering services for 21 different client groups and assisted with providing services to 97,000 households during 2007.
21. By working collectively it is more effective to establish close links with key agencies in the East Region, such as EERA, Go-East and a number of regional housing groups. It also makes it easier to promote the benefits of the SP programme at a regional level and for others to consult with the authorities on initiatives. For example we submitted a collective response to the No Secrets consultation after being visited by a DoH representative.
22. We have developed a number of joint initiatives that benefit ourselves, providers and other commissioners, such as; · Reducing bureaucracy for providers and Supporting People teams by developing a regional accreditation process. · Developing a regional contract for jointly funded services between Adult Social Care and Supporting People. This is now being introduced by authorities as new contract are being issued and we are looking to develop joint outcomes. · A benchmarking database has been produced across the SP teams in the region and a further solution to benchmarking that links our regional data with national data is currently being explored. · A regional strategic commissioning toolkit has been developed which will further strengthen the work Supporting People undertake within the East Region. · Developed a Capital Allocations Model in partnership with the Housing Corporation (now known as Homes and Community Agency) and the housing sub regions that significantly improved the connectivity between capital and revenue allocations for new supported housing services. · Produced a document that shows how the SP programme is relevant to the National Indicator set, prioritises their importance and suggests how SP can contribute. This is very useful to assist local SP teams in the discussions with their authority performance teams.
23. We are now focusing on the delivery of our action plan that was published in the Regional Strategy.
May 2009 [1] HACT collaborate resource kit |