Download Heads of Terms Agreement - Voluntary Action Oldham

GM Whole Place Community Budget
Summary of approach
Objectives and priorities
The Greater Manchester strategy focuses on reducing dependency on public services
through public sector reform and supporting economic growth through greater workforce
productivity, reduced worklessness and improved skills. The Whole Place community
Budget is at the very heart of this, taking a radical view on service delivery models that
will reduce dependency and failure demand whilst promoting independence resulting in
a fundamentally different relationship between public services and citizens.
Our experience shows that current public services are often fragmented and
uncoordinated, addressing symptoms not causes resulting in poor outcomes at high
costs. The Greater Manchester pilot aims to move away from this unplanned reactive
and high cost spend towards a more transformational reduction in demand whilst
moving the most challenging people and places towards self-reliance. Essential to
success will be breaking into the cycle of high cost demand and dependency at the
earliest stages of intervention and prevention.
The Greater Manchester concept of a community budget is one that involves joint
investment and resources supporting a range of new delivery models, delivered through
new investment agreements where partners achieve a return on investment based on
robust evidence and evaluation. Successful implementation of the Greater Manchester
pilot will largely be dependent on the level of ambition and innovation demonstrated
locally and the ability to develop propositions that gain the support of Government
Ministers.
Thematic areas within the Greater Manchester pilot
Four key thematic areas are being progressed through the Greater Manchester pilot:
 Taking troubled families out of dependency through joint agency working and
integrated commissioning, identifying effective sequencing, prioritisation and
integration of support.
 Improving Early years provision focused on school readiness to deliver longterm increases in earnings and workforce productivity and short-term benefits on
cost avoidance from reduced demand on services and potential reduction in
looked after children.
 Transforming justice and reducing re-offending working across criminal
justice agencies, health and local authorities, building on small-scale exemplars
such as intensive alternatives to custody and greater use of conditional
discharge.
 The focus of health and social care is of meeting the needs of vulnerable
people, promoting independence, reducing demand, and ensuring good quality,
financially sustainable services
Each theme is explored in more detail in the annexes attached.
Underpinning the delivery of whole scale reform within these areas are cross-cutting
themes developing new investment models, delivery models, workforce skills and
culture. A further workstream is taking a whole place view of Greater Manchester,
identifying demands on public services across the whole geographic areas and
informing the most appropriate level for service design and delivery.
New Delivery Models
Each exemplar area is developing their own approaches to service delivery. To ensure
optimum benefit from this work we are also exploring whole systems approaches to new
ways of working that cut across all theme areas. These will incorporate transformational
approaches, shifting from models where professionals work within their organisational
fields and organisations to new models incorporating hybrids of existing roles and
delivery streams.
Key Timeline
Phase 1: March –
June 2012:
Phase 2: May –
October 2012:
Phase 3: Post
October 2012:
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Governance arrangement
The delivery of the pilot is overseen by the Public Service Reform Executive, comprising
Chief Executives and senior officers from partner organisations across Greater
Manchester. As part of their role the executive is responsible for providing strategic
direction and challenge to the thematic areas of work and the pilot overall. They are
themselves responsible to the AGMA wider Leadership Team and Leaders through the
AGMA Executive and Greater Manchester combined Authority.
The Greater Manchester pilot will also report in to the overall national governance
arrangements for the four pilot areas.
To ensure alignment with the Deal for Cities work, the Greater Manchester Community
Budget will reporting in to their governance structures. In addition the troubled families
workstream will engage effectively with the Troubled Families Unit to secure maximum
benefit and alignment.
Project team
A core team of officer has been established to drive the delivers of the pilot,
incorporating both local officers and government officials working together, bringing
together Local Authorities, Health, Police, Probation, Community and Voluntary sectors.
From the core team leads for each for the thematic groups have been identified and are
directly responsible to the Programme Director. Each team will deliver an agreed project
plan which will identify what currently works well, what could be scaled up across the
GM area and how new delivery models could be implemented.
Further information
Further information is available from Vicky Sharrock at [email protected]
Annex A: Troubled Families
The aim of this workstream is to take troubled families out of dependency, to connect to
opportunities for growth across the conurbation, scaling up existing work in
neighbourhoods and districts.
There is now an even greater national focus on troubled families, given the
Government’s announcement of £448m of for local authorities to drive progress on
turning round the 120,000 most troubled families over the life of this Parliament. This
will be primarily on a Payment by Results basis, with Government funding 40% of the
costs and local partners expected to find the remaining 60%.
Government estimates there are around 8,090 troubled families in GM, and wants to
take all of these families out of dependency in the lifetime of this Parliament. Success
could generate significant savings and contributions to GM growth. For example,
Manchester City Council estimates taking 4,000 families out of dependency could save
£50m across the public sector. This work will look at the scope of greater GM level of
working on troubled families across the conurbation.
This workstream should establish new investment models in which partners see a
return on joint investments for troubled families. In particular, ensure all partners have
the ability and freedom to jointly invest in multi-agency investment funds, underpinned
by investment agreements – to ensure all the benefits of working in this way can be
captured by upfront investment.
These investment models will be based on locally-specific new delivery models that
integrate commissioning and delivery across all the partners that support troubled
families. The work should ensure all partners have the operational freedoms to adopt
these new delivery models, including effective sequencing, prioritisation and integration
of support across agencies. Robust evaluation evidence should be produced that show
the incremental financial and non-financial benefits of new delivery models over
business as usual.
The workstream will also need to engage effectively with the Troubled Families Unit to
secure maximum upfront investment, recognising the particular challenges in cities
and boroughs with high concentrations of troubled families. Those cities will have to
invest significantly greater resources in new delivery models that are as yet unproven.
Upfront financing will be required to share the risk, for example through enhanced
attachment fees. Work with Government will need to include agreement about how the
proceeds of success are apportioned.
Links to worklessness
There is clear overlap between reducing worklessness in GM and turning round
troubled families given the clearest route out of dependency is through work, which may
well require action to improve skills. There will be significant overlap here with the Deal
for Cities agenda and this project will ensure effective connections are made to make
progress on both fronts. Many troubled families have inter-generational worklessness,
nobody working in the household, few if any formal qualifications and low levels of
aspiration and resilience. There are strong incentives for the connections to be made
with:
-
JCP districts, who are measured by their ability to move people off benefits and
back into work quickly, particularly within 12 months – JCP districts can refer
troubled family cases to these new delivery models and have greater financial
flexibility to invest in shared local priorities
-
Work Programme primes, who receive PBR funding from DWP when they support
people back into work, and who receive referrals from JCP – primes could refer
troubled family cases to these new delivery models as a basis for joint delivery and
investment models
-
European Social Fund (ESF) providers, who also receive PBR funding from DWP
for supporting individuals within complex families back into work, and achieving prework outcomes – representing additional capacity within districts and across GM that
needs to be integrated with these new delivery models
-
GM work on a stronger local element to skills commissioning alongside the
Deal for Cities process, including work led by New Economy to bid for ‘Employer
Ownership of Skills’ pilot status
Annex B: Early Years
The aim of this workstream is to improve school readiness, to support the MIER and
GMS priorities of improving long-term earnings and workforce productivity. This is
essential to supporting long-term growth across GM. Longer-term effects should be
manifest in shorter-term improvements to early years indicators, school attainment, and
school attendance. There may also be short-term benefits from reducing the incidence
of children taken into care, which would avoid significant costs for GM districts and their
partners.
This will build on the work of the existing GM high-level task and finish group, to
- develop a joint outcomes framework, incorporating GMS indicators
- identify scalability factors that support investment, and
- create an enabling workforce.
New delivery models and investment models will be developed for specific early years
interventions that have a strong evidence base (e.g. speech and language therapy,
parenting courses) that are closely linked to those for troubled families and transforming
justice. We will also examine the evidence base for interventions that improve
aspirations and enhance resilience.
This workstream will involve close working with Government to increase the pace of
progress, and to ensure all the GM organisations involved have the freedoms to invest
in new investment models and the organisational flexibility to embrace the new delivery
models developed.
We estimate that raising long-term average earnings of GM residents to the national
average could boost GVA by £340m p.a. or more, and short-term cashable savings of
£2m p.a. could accrue to local authorities for every 1% reduction in the number of
Looked After Children.
Annex C: Transforming Justice
This work aims to reduce reoffending, and reduce demand across criminal justice
agencies, health, housing and local authorities. The aim set out in the CB bid to
Government is to achieve a 30-40% reduction in the reoffending rates of priority groups
who have the biggest impact on individuals and communities. This will mean generating
evidence-based new delivery models for point of arrest, point of sentence and point of
release, building on small-scale exemplars such as intensive alternatives to custody and
greater use of conditional discharge. There is significant latitude within this high-level
target to define cohort, timescales and baselines.
Multi-agency investment funds will be developed across the full range of partners that
benefit from reduced demand on the criminal justice system, underpinned by investment
agreements. We will work with Government to overcome blockages to joint investment
and effective multi-agency delivery models from local partners, and aim to scale up the
30-40% reductions demonstrated in neighbourhood pilots across GM.
This work will need to maintain the fidelity of the MoJ’s evaluation of its Financial
Incentive Model, which is one of two national Justice Reinvestment pilots that rewards
places for reductions in demands on the criminal justice system. The Community
Budgets work will build on the GM FIM to drive progress at a much greater scale,
setting out how to invest in transforming justice interventions that reduce demand
across the whole public sector, not just within criminal justice.
Annex D: Health and Social Care
The aim of this theme is to support the development of new investment models and new
delivery models that help meet the health and social care sectors’ Public Service
Reform objectives. In particular, meeting the needs of vulnerable people, promoting
independence, reducing demand, and ensuring good quality, financially sustainable
services.
The context is the very high costs of poor health in GM, significant cost pressures in the
system, a lack of coherence and join up across the health system and the local authority
social care system, overlaid with rising demand pressures amidst year on year
reductions in spend. Continuing ‘as is’ is simply not an option.
A key output of the work will be creating the system leadership conditions that enable
fundamental and transformative approaches to health and social care integration from
the perspective of the citizen.
To develop new delivery and investment models, the theme will:
1. State the Case for Change in Greater Manchester
Detail a granular picture of the current costs and activity across the separate health and
social care systems at the two spatial levels of local and Greater Manchester wide, set
against the demographic and financial challenges facing Greater Manchester. This will
provide a compelling case for change for partners across GM and to inform the national
picture of the urgent need for new delivery and investment models in health and social
care.
2. Articulate the Future Model of Integrated Health and Social Care in Greater
Manchester
State the Vision for health and social care in Greater Manchester; the Principles of
integrated health and social care; the role of the citizen, and how they will be
empowered through new delivery models. We will, using worked examples, highlight the
priorities for long term preventative action and wellbeing promotion to reduce long term
demand; create new delivery models for integrated health and social care provision for
older people, people with long term conditions, people with disabilities, mental health
provision and urgent care. We will state the forecast allocation of spending across the
health and social care spectrum as a result of the future integrated model, showing for
example, the move in proportion of spend from hospital and acute services to
community based provision.
3. Provide the Roadmap to the Future
Highlight and scale up good quality existing reform initiatives operating across Greater
Manchester at a local level which are already contributing to new ways of working to
deliver a better service at lower cost. We will develop new Community Budget
Exemplars, with Investment Agreements between different partners that align incentives
and share the benefits of new delivery models. This will include co-designing funding
and incentive systems with government based on outcomes rather than activity, and
agree how the proceeds of success are shared between Government and GM. We will
identify the blockers to reform and articulate the solutions, at a local, GM and Whitehall
level.
The roadmap to the future will detail system level changes required to deliver high
quality, integrated health and social care, using specific Exemplars to illustrate where
and how a Community Budget approach can make a discernable impact. This will
include for example, population level activity supporting improved health and well
being; Early Diagnosis / Case finding / Targeted upstream services; Integrated Self
Care including Telecare / telehealth;