SUFFOLK: “Confusing messages” about the New Strategic direction are are making it difficult for both the public and councillors to understand what it is all about.
That’s the verdict today from the opposition at Suffolk County Council as it prepares for another debate on the authority’s flagship policy.
The county council is to debate a 25-page, 139 paragraph, report entitled: “Update on the implementation of the New Strategic Direction” at next week’s meeting of the full council.
A senior member of the administration said that councillors had debated the policy many times before and were quite capable of understanding the issues due to be discussed.
The key recommendation is that the county should use a principle dubbed “Your Place” to discuss changes to the way services are delivered.
That means it would talk to groups in towns or communities about taking over a number of services currently run by the county council – like libraries, country parks, school crossing patrols, and youth clubs – rather than discussing each separately.
And the report admits that up to now the council has not always been clear about what the changes will mean.
It says: “Through our engagement with individuals, communities and organisations, we understand that we have not been clear about the fact that it is not for the council to determine which services should be delivered locally.
“We need to listen to views expressed by communities, individuals and organisations and work collaboratively to develop new ways of providing services, particularly at a local level.”
It says the council accepts it has not given enough time for people to develop alternative local solutions – which is why the council put aside a �1.7 million contingency to keep services operating while alternative providers are developed.
Opposition LibDem leader Kathy Pollard said: “The trouble is there are so many confusing messages coming out about the NSD that it is very difficult for councillors, let alone the general public, to understand what it is all about.
“I don’t think this update makes things any clearer.”
She said when people concerned about the future of library services in the county had a meeting with officials and councillors last month, many of those had come away with the impression that only three libraries would be retained as ‘county libraries’ in any review.
The county quickly moved to deny there was any suggestion that Suffolk could only be left with three county libraries.
But Mrs Pollard said this showed the problem: “The message is simply not getting across clearly,” she said.
Cabinet member Colin Noble said the report was inevitably detailed because it was written for councillors who had already debated the NSD several times.
It was not unreasonable to assume that they had a good working knowledge of the issues.
He said: “I would not expect this paper, in the chamber, to be simple. That is quite different to how you articulate this to the general public because what you’ve then got to do is the politician’s job and the politician’s job is to take complex issues and articulate them to them.
“That is not to talk down to them at all, it’s around how you then talk with residents and the wider public and frankly how you get it across to people.”
Mr Noble said talks with communities had shown that they wanted to talk about the future of services generally, not individual services, which was why the county would now be talking about a range of services together rather than individually.
Do you understand the New Strategic Direction? Write to Your Letters, Evening Star, 30 Lower Brook Street, Ipswich, IP4 1AN or e-mail eveningstarletters@eveningstar.co.uk
The full report is published here and is also available on the county council website through the link on this page.
UPDATE ON THE IMPLEMENTATION OF THE NEW STRATEGIC DIRECTION
Brief Summary of Report
1. This report sets out progress made since December 2010, updating on key
developments in the public service agenda and how the New Strategic
Direction is evolving to address these changes.
2. It feeds back on the work of the Member Working Groups to date, shows
how the lessons learned from engagement have been fed into the
development of ideas and also introduces some new ideas generated by
the implementation of the New Strategic Direction to date.
3. The report outlines the Council’s approach to implementing the ‘Your Place’
idea introduced in the report to the Council on 2 December 2010.
Incorporating learning from engagement events on the New Strategic
Direction, ‘Your Place’ will be based on working with communities in Suffolk
about the delivery of public services and social outcomes in localities. The
recommendation below relates to the implementation of ‘Your Place’.
Action Recommended
4. That ‘Your Place’ divestment decisions should be made through
conversations in a place, not on a service by service basis and that, where
possible, the Council will work with local communities to come up with a
preferred local solution, but if that’s not possible the Council will make a
decision between proposals based on clear and communicated criteria.
Reason for Recommendation
5. Based on the views and information gathered as part of the ongoing
engagement on the development of the New Strategic Direction and work
with partners including the Suffolk Association of Local Councils and The
Suffolk Congress, there is a need to look at service delivery from a
community, rather than organisational perspective. To ensure that we are
clear with communities about our approach, we need to recognise that it
may not always be possible to come up with a single proposal in each area
for all services and communicate how decisions will be made.
Alternative Options
6. No alternative options are suggested.
Main Body of Report
Introduction
7. In December 2010, the Council agreed:
i. “that the Council continue to implement the New Strategic Direction and, in
so doing, continue to engage with Suffolk’s communities throughout its
development in order that they had the opportunity to better understand
and influence the future direction of the Council;
ii. to note that the Divestment Member Working Group would produce an
outline programme for divestment covering the ‘big ideas’ and ‘Your Place’
as a basis for discussion with interested parties and the community; and
iii. that this was a work in progress and that as the work of the strategic
council, community capacity and democracy working groups progressed,
regular reports be brought to the Cabinet and the Council. The
implementation of the Council’s New Strategic Direction was agreed by
Council in December 2010.”
8. This report sets out progress made since December 2010, updating on key
developments in the public service agenda and how the New Strategic
Direction is evolving to address these changes.
9. It feeds back on the work of the Member Working Groups to date, shows
how the lessons learned from engagement have been fed into the
development of ideas and also introduces some new ideas generated by
the implementation of the New Strategic Direction to date.
A New Context for Local Government
10. Overall, the final grant settlement for the Council was worse than had been
planned for. A like for like comparison of the position for the Council
between years shows a loss equivalent to �37m of general grant. This is
made up of a �27m reduction in formula grant as highlighted by government
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and also over �9m of Area Based Grant which was neither anticipated nor
easy to assess from the Spending Review. This gap is greater than
planned for due to a combination of changes to concessionary fares, a �2m
cut in funding to pay for the national academies programme and the
damping arrangements that move resources between councils.
11. The cost pressures from inflation, demand and demography and the
increase in the contingency to manage risk total a further �17.7m, leading to
a funding gap of �54m.
12. This gap has been closed by using additional council tax from an increased
tax base and an increase in council tax collected which provides �4.4m of
additional revenue, the council tax freeze grant of �7.2m and savings of
�42.5m.
13. The final settlement gives us clarity on the current financial position of the
Council. As to the future, the financing of local government is again back on
the Government’s agenda. The Government’s ‘Local Government
Resource Review’ will consider the future of local government funding
beyond the current two year settlement period. One of the key principles
the government will be examining is how local government can become
more self financing or less reliant on government grant.
14. Alongside the local government financial settlement, the Government has
introduced a raft of legislation affecting local government and which
influences the development of the New Strategic Direction. They include the
Localism Bill, Health and Social Care Bill and the Education Bill.
15. A White Paper is also anticipated shortly on public service reform. It is
expected to include ideas such as:
i. Cutting costs of all public service providers so they become as efficient
as the top 25% most efficient public service providers in order to save
20 to 30% of the �250bn cost of public services;
ii. transferring responsibility for the cost of services via a market to
purchasers of public services;
iii. all public service providers should be given almost total freedom to
respond effectively to their customers; and
iv. transferring funding for local services to local communities without any
strings from Whitehall.
16. These changes continue to emphasize the need for a new way of looking at
public services and the fact that continuing to deliver services in the same
way as they have always been delivered will not achieve a reduction in cost
of the scale required.
17. The Council has already started to implement a number of changes and
over the past six months we have seen the completion of a number of
organisational reviews to make it more efficient, in particular reducing the
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corporate overheads of the Council. However, organisational reviews alone
will not achieve the level of savings required. A much more
transformational change is needed to deliver the savings and the Council
has already embarked on this agenda.
18. There are consultations underway relating to the future of Residential Care
Homes and a new model for the delivery of Libraries. The Children and
Young People’s service is in the process of introducing a new Operating
Model based on the development of integrated teams around children and
families.
19. More fundamental changes are progressing with the transfer of community
health services for children to the Council and developments around the
transfer of public health functions to local government.
20. With such fundamental changes to the way services are delivered, there is
a clear need for cultural and behavioural change across the Council. In
order to be able to lead public services and move with pace we need to look
at the way we procure goods and services, how we manage, dispose of and
acquire property, our relationship with our partners and communities in
Suffolk and the relationship with our staff. The New Strategic Direction gives
us the framework to achieve this.
The New Strategic Direction – Learning from Engagement
21. The New Strategic Direction is the Council’s ideas for how public services in
Suffolk deal with less money for service delivery.
22. For the Council it is a whole organisation change programme consisting of
the building of a new relationship between ‘a Strategic Council’ and
‘divested provision’ made up of a mix of delivery vehicles; services
clustered around themes, customers and place and new approaches
inspired by community engagement and ideas.
23. It will not be possible for the Council to control and ‘programme manage’ all
aspects of this change and we have to focus on the priorities. These
priorities relate not just to the Council but to influencing the ‘Suffolk System’:
i. Implementing a package of cost reductions within the 2011/12 financial
year of over �40 million;
ii. developing a new, smaller, fundamentally redesigned strategic council
and divesting service provision to achieve a �40 million saving by 1
April 2013, rather than implement further rounds of service cuts;
iii. building ‘bigger society’ in Suffolk (and setting a specific big society
ambition);
iv. investing in Suffolk enterprises and stimulating the Suffolk economy;
v. creating greater social investment funding in Suffolk;
vi. creating fast cultural change within the Council to act in a way that
facilitates divestment and locality working;
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vii. creating the officer element of the new organisation to start the new
roles of market making and championing the ‘Which’ magazine
approach;
viii. supporting the change process in the voluntary and community sector
to meet the challenges presented by the need to take a more
commercial approach to public service delivery; and
ix. implementing personalisation to financially empower citizens to act as
consumers.
New Strategic Direction and the 2011/12 Budget
24. The Council always said that developing the New Strategic Direction would
require new thinking and that we would need to learn new skills,
approaches and behaviour as we implemented. This has been the case. It
is important that the learning is captured and reflected upon. This might be
considered an unusual behaviour in a political environment, but it is
something we remain committed to. We believe that in Suffolk’s 720,000
residents, over 400 local Councillors and the many voluntary organisations
and businesses, there is a wealth of knowledge and creativity about how
social outcomes could be achieved. We want to co-create solutions in
Suffolk so that we can build something that is better than the Council can
achieve on its own.
25. One of the areas where we have learnt was in the overlap between his
years’ budget and developing the New Strategic Direction. A great deal of
the ongoing engagement process to develop the New Strategic Direction
has taken place at the same time as the preparation of the budget for
2011/12 and, therefore, alongside proposals to remove over �40 million
from the budget. This has meant that messages about valuing public
services, but needing to look for different, more local and cheaper ways of
delivering them have not been explained well.
26. Through our engagement with individuals, communities and organisations,
we understand that we have not been clear about the fact that it is not for
the Council to determine which services should be delivered locally and that
we need to listen to views expressed by communities, individuals and
organisations and work collaboratively to develop new ways of providing
services, particularly at a local level.
27. In particular, we have heard that the reductions in services for 2011/12, do
not allow sufficient time to develop local alternatives. With this in mind, the
Council agreed, at its Budget Meeting on 17 February 2011, to make
available contingency funding to allow time for credible proposals to be
developed prior to any services being withdrawn.
28. In addition to this, officer resource will be made available to progress from
expressions of interest to business cases over the next six to nine months.
However, if we are unable to find alternative, cheaper means of delivery,
some services will cease because we cannot afford to provide everything
we currently provide.
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The need for better information
29. We have also heard about the need for more detailed information if we are
to enable communities to make an informed decision about whether they
are interested in taking on a service. In response, Libraries, Country Parks
and Youth Clubs have all produced information packs to support the
engagement activity for their service areas.
30. Council officers from across the services have met with around 120
members of town and parish councils as part of six detailed meetings
organised by Suffolk Association of Local Councils.
31. Information and guidance is also being prepared by teams within Property
and HR and in other areas of Resource Management.
Working with our local partners
32. It is recognised that the Council must capitalise on the wealth of local
knowledge and expertise offered up by the third sector.
33. With this in mind members of the voluntary and community sector (VCS)
Congress met with the Corporate Management Board in January 2011 to
explore the opportunities for working in collaboration. As a result members
of the VCS are now involved in a number of strands of activity connected
with the New Strategic Direction. These include participating in the
development and implementation of the ‘Your Place’ approach, participating
in workshops to develop the options for the Health and Care Trusts and
procurement and contributing to the ongoing communication and
engagement activity.
34. The Council has also sought input from the business community and held
an ‘Industry Day’ at the end of January 2011. The focus of this day was the
role that business, in particular Suffolk enterprises, can play in the New
Strategic Direction and the importance of investment in the new public
service agenda.
Developing a conversation about place, not individual services
35. We have heard messages about better quality and earlier communication;
the need for capacity now to develop solutions and the need for the cocreation
of ideas, rather than consultations on proposals.
36. With this in mind the Council has further developed its approach to ‘Your
Place’, an idea which was introduced in the 2 December Council paper. The
‘Your Place’ idea introduced an enhanced focus on localities and a desire to
build greater community participation in and ownership of local public
service delivery.
37. The Council has worked with and is working in partnership with a number of
‘infrastructure organisations’ including the Suffolk Association of Local
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Councils (SALC), Suffolk ACRE, the Suffolk Association of Voluntary
Organisations (SAVO) and Young Suffolk to engage communities and
organisations who have specifically expressed an interest in working with
the Council. The aim of this work is to have conversations about public
services in individual places in Suffolk, not necessarily to run them in the
same way, but to have an open discussion over a period of time to develop
ideas.
38. We know that local councils and community groups already work in this
way. One small example is Sudbury Town Council, who engaged 150
volunteers to be responsible for spreading grit from 40 yellow grit bins
dotted around the town. Over 500 volunteers came forward in response to a
request for support and it illustrates that local councils are a fantastic asset
being embedded in the community and having strong accountability and
local connectedness.
39. We also know that one of the strengths of the Suffolk economy is the large
number of small and medium sized businesses we have. These are spread
throughout Suffolk, in both rural and urban areas, and in themselves are a
source of social capital as they are often closely connected to the
communities in which they operate. In managing our divestment programme
we will be looking to build on this section of the economy and there will be a
role for the strategic council in overseeing this on a continuing basis. The
move to personalised budgets for social care in particular provides an
opportunity for small businesses to meet the needs of people locally. We
are working with Choose Suffolk to ensure that Suffolk has universal high
speed broadband access to enable businesses in Suffolk to capitalise on
these opportunities.
40. To support this, we will need to prepare better quality information and
ensure that information reaches those who need it quicker. We will work
with partners to further develop capacity in communities as part of the ‘Your
Place’ approach. This will include officers being made available in localities
to work alongside local Councillors to encourage new ways of delivering
and funding local public services and training and development being made
accessible for those looking to take on services. This is not a formal locality
structure, but a culture and behavioural change for officers.
41. In developing options for divesting a service, we will involve as wide a range
of stakeholders as possible in the conversation helping to co-create
solutions and options instead of consulting once they have been designed.
This will enable us to tap into the creativity of others and will help to ensure
that services are fit for purpose and that they meet local needs.
42. We have heard that communities have to have many conversations with the
Council about services in their area and have to deal with different officers
from different departments, and there is a need for a more joined up
approach.
43. We will support Councillors to have conversations in their communities and
provide Councillors with a single officer point of contact in a locality. We will
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bring together service leads from within the Council with members of the
VCS and SALC to agree a co-ordinated response on a place by place
basis.
Decision making
44. Finally, we have also been asked how we will make decisions about who to
divest to. We introduced some criteria for making divestment decisions in
the 2 December Council paper. It identified a set of criteria as a high level
means of assessing proposals. These were:
i. Priorities – which option contributes best to Suffolk’s priorities and
challenges?
ii. Value for money – does it reduce costs quickly? Over the next three
years? Over a longer period?
iii. Accountability – can the customer hold the provider to account? Is there
choice in the market?
iv. Community support – does the proposal have support from a
geographical community or a community of interest?
v. Localised solution – does the proposal allow for local variations in
communities and markets?
vi. Impact on Suffolk economy – will the solution be locally provided? What
effect will it have on employment and skill levels in Suffolk?
vii. Achieve collaboration – does the proposal require/encourage other
providers to get involved?
viii. Sustainability – does the proposed provider have a track record in
service delivery already? How do they demonstrate their ability to run
the service?
ix. Quality, Regulation and Protection – Can quality be safeguarded?
What happens if the service folds? Will vulnerable and equality groups
be disproportionately affected?
45. These high level criteria remain and they can be developed to suit local
circumstances. For example, in the case of Country Parks, the following set
of criteria have been developed to assist with the evaluation of expressions
of interest and communicated to interested parties:
i. A reduction in cost to the Council.
ii. Whether the Council relinquishes all interest in site or not.
iii. Recreational objectives i.e. the Council would like the site to continue to
be available for community use.
iv. Environmental objectives – the fulfilment of any environmental
requirements e.g. Site of Special Scientific Interest (SSSI).
v. Assurance of long term continuity of provision:
a. legal arrangements of ownership;
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b. protection of the site as a community asset;
c. does the proposed provider have a track record that demonstrates
their ability to run the service.
vi. Community support – does the proposal have support from a
geographical community or a community of interest?
vii. Partnership working – does the proposal encourage others to get
involved in delivering a solution?
viii. Deliverability – is the proposal robust? Can the organisation deliver?
46. The nature of the decision making process will be proportionate to scale
and risk and in line with the Council’s existing decision making
arrangements. Decisions, particularly local ‘Your Place’ decisions, will need
to be judgements based on the best information available and in the best
interests of the community.
47. The biggest risk decision for the Council is around the future of social care
for both adults and children, which is why these services are excluded from
the ‘Your Place’ discussions. The decision regarding the future of social
care services will come to the Council.
48. In the case of smaller decisions, for example the decision to dispose of a
small recreational site to a community, this could be made by the Director in
consultation with the local County Councillor and relevant Portfolio Holder.
In the case of major front line decisions, for example a new model for the
Council’s Library Service, this would be a decision for the Council following
a recommendation from the Cabinet.
49. It might be expected that the Cabinet recommend a framework giving the
level of Council funding for a future library service and recommendations on
the larger libraries. However, decisions on smaller libraries within place
discussions could be made by the local County Councillor and the relevant
Portfolio Holder as long as there had been a published, open discussion
with interested enterprises, community groups and local councils within the
area. The exact workings of this mechanism will need to be discussed by
the Community Capacity and Divestment Member Working Groups.
50. Decisions on the Council support services, e.g. legal services, ICT, Traded
Services, will be made by the Corporate Management Board.
The importance of social investment
51. Alongside the learning from the engagement process, the importance of
investment in the New Strategic Direction is increasingly apparent. The
Council needs to be prepared to ‘invest’ in Suffolk if the New Strategic
direction is to transform public service delivery.
52. There are examples where this is already happening. The Council has
invested �120,000 in the Suffolk School for Social Entrepreneurs, which is a
national initiative with local schools. The investment has supported bringing
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the School to Suffolk and sponsoring students. There are twenty students
who will go through a one year development programme to translate their
ideas and creativity into social enterprises. It is not a qualification course,
rather the practical development of social enterprises in Suffolk.
53. As well as stimulating social entrepreneurs, the concept of social
investment is growing in importance and reputation. The use of Social
Impact Bonds, up front investment with returns linked to social outcomes, is
growing and the idea of using social investment vehicles to tackle hard-toresolve
issues such as youth re-offending, long term health problems such
as heart disease and dealing with the barriers faced by families with chaotic
lifestyles is something which merits consideration. However, as yet there
are few national examples of Social Impact Bonds and this concept is
unlikely to provide a solution in Suffolk sufficiently quickly.
54. Rather than spend time negotiating complex mechanisms for investment in
social outcomes, Suffolk could create a ‘Suffolk Social Investment Fund’,
potentially pooling funding, from sources such as the Big Society Bank or
local philanthropists, together with some Council budgets. This fund could
be used as ‘investment’ for projects based on proven concepts of early
intervention and prevention. This investment could be linked to a payment
by results contract and needs to identify the best and most successful form
of delivery, not just continuing investment in what has gone before.
55. The Suffolk Foundation could be a key partner in developing this fund and
there is a need to explore the opportunities with them. The Suffolk
Foundation already manages large scale social investment in Suffolk and
has built an endowed fund approaching �3million over the past three years
from donations and property and share transfers.
56. With this in mind the Council is working with the VCS to look at how it can
change its relationship with the sector to develop the highly effective, but
small scale interventions into more widespread models of delivery. One of
the problems associated with this is that the sector is not designed in a way
which enables it to benefit from large scale contracts. As well as looking at
our procurement methods, we can work with the VCS to support them to
develop consortia to bid for, manage and allocate work across the sector.
57. One model being considered would be to create a single organisation that
supports the wide range of VCS organisations to meet the true potential
offered by the diversity of the sector. We are discussing this idea with a
national organisation, the Social Investment Business, but also with
colleagues in the local voluntary sector. The level of change this could
achieve in terms of a different means of meeting service delivery challenges
in Suffolk might not be possible through investing in individual organisations
as they simply cannot achieve the scale.
58. The idea of a Suffolk owned and driven consortia headed by a single
organisation would be to:
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i. Bid for contracts from the Council and / or be the accountable body for
each contract.
ii. Build, quality assure and performance manage a VCS supply chain of
local, regional and national organisations to deliver better, cheaper
services and outcomes.
iii. Source and organise financing from local and national sources,
foundations, high street banks and specialist social investors.
iv. In time, with developed supply chains, deliver more sophisticated,
outcome based contracts, Social Impact Bonds (and other preventative
activities funded by new forms of social investment). In the short term,
the purpose would be to enable more services to be delivered locally at
less cost and to a higher standard.
59. This idea needs further exploration and will be developed with partners
locally. A single organisation with a fixed structure is not the only option and
we will need to develop a flexible approach which provides a framework for
consortia to be formed quickly to bid for different aspects of service delivery
and one which works for Suffolk and is rooted in Suffolk.
60. Regardless of how investment is achieved, early intervention and
prevention are clearly desirable and the work completed by Graham Allen
MP indicates its importance going forward. The independent report ‘Early
Intervention: The Next Steps’ was accepted by Government and focuses on
how success or failure in early childhood has “profound economic
consequences” and calls for more private money to be channelled into early
intervention schemes to help children and families. The question will be how
to stimulate investment in early intervention, whilst funding current delivery
with fewer resources.
Progress from the Member Working Groups
61. In order to develop the thinking and the approach to implementing the New
Strategic Direction four Member Working Groups were established. The
following section feeds back on the work of these groups.
The Strategic Council – future governance and political management
62. The Strategic Council Member Working Group recognised that the context
in which the Council operates will change radically in the future.
A different environment
63. Over the next two years, different governance arrangements will be
introduced for the police and the healthcare system here in Suffolk as
elsewhere. Suffolk will have an elected Police and Crime Commissioner
and an as yet unknown number of new GP Commissioning Consortia.
Suffolk has been selected as one of the counties where the proposed
Health and Wellbeing Board (bringing together decisions on health and
wellbeing, and including social care) will be established in shadow form in
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2011, one year earlier than required in legislation. The Local Enterprise
Partnership has already been given ministerial approval. These changes
will fundamentally change the way in which we will need to operate with our
partners.
64. The divestment of our services will also change the way in which the
Council needs to operate. Leadership will need to be dispersed across the
new entities that will be delivering services for the people of Suffolk on the
Councils behalf. In addition, increasing personalisation of budgets (i.e.
giving people money directly instead of packages of care as typically
happens now) means that more decisions will be taken by people for
themselves. Both of these factors mean that many of the kinds of decisions
taken now by the Council, the Cabinet and officers, will in future take place
either in divested organisations or by people taking responsibility for their
own lives and care.
65. Finally, the Strategic Council Member Working Group recognised that
difficult decisions about services will be taken over the coming months and
that it would be important for all Councillors to be seen to be taking part in
those. All of these factors signal the need for a radical look at the way in
which members lead and work.
A Public Service Board for Suffolk
66. Recognising the shifting environment in which the Council works, the
Strategic Council Member Working Group saw great merit in a Public
Service Board. In particular they supported the idea that the establishment
of the Health and Wellbeing Board in Suffolk offers an opportunity to
develop a Board where all the strategic partners could work together in
Suffolk. A Public Service Board will have power and influence, which comes
directly from its membership, its collective financial resource and its belief
that issues are better solved on a collaborative basis.
67. A Public Service Board would take some of the decisions currently taken by
the Cabinet, but in return would enable the Council to have an influence
over the decisions taken in other parts of the public sector. This shared
decision making will improve outcomes for the whole of Suffolk.
So what will the Strategic Council be like?
68. With the removal of service delivery, the Council will be a much more
political organisation; politics will be at the heart of what it does. The
Strategic Council Member Working Group felt that the Council should
therefore provide a greater ‘space’ for politics and for Councillors to come
together and debate issues and to hold partners and providers to account.
The group were attracted to a more ‘Parliamentary’ model which enabled
Councillors to both scrutinise and develop policy much in the same way that
Members of Parliament do in their roles on Select Committee.
69. The Strategic Council Member Working Group was very mindful of the need
not to build costly structures, but felt that a balance could be drawn that
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supported the engagement of Councillors in policy development. The Task
and Finish Groups proposed as part of the new scrutiny arrangements
would fit well with this new approach.
70. Divestment of services will allow the Council and Councillors to be seen to
be much more on the side of residents and customers; the Council will no
longer have to also defend services. This desire to defend ‘our’ services
sometimes puts the Council into a position of conflict and means it cannot
be as strong an advocate for local people as it would want to. Divestment
makes it possible for the Council and Councillors to be stronger advocates
for residents.
71. However, divestment will not change the Council’s statutory responsibilities
even though they will be discharged in very different ways. One of the
important functions of the new strategic council will be to find real political
mechanisms to show that there is still democratic accountability in the new
system. This leads to changes in how we think about the role of the
Executive and the Council, and how Councillors represent their
communities and individual constituents.
72. There will still be a need for visible political leadership as currently provided
by the Cabinet, although the Strategic Council Member Working Group felt
that, as the Council and the Public Service Board will make some of the
decisions currently made by the Cabinet, this could be smaller and more
cross cutting than the tightly defined portfolios we have now.
73. The ideas developed by the Strategic Council Member Working Group will
be revisited in the future as changes in the Suffolk system take place over
the next couple of years. It is too early to take decisions on implementation
now, but the work completed to date set a clear context for the changes
ahead.
Divestment
74. The concept and principles of divestment are now well understood and the
work of the Divestment Member Working Group has focussed on tasks that
we can learn from and that will move divestment forward. These include:
i. Collecting and making available learning from the Early Adopters;
ii. providing support and challenge through both the officers’ and
members’ working groups;
iii. investigating and creating a range of support for those divesting,
particularly focusing on some of the technical questions being raised;
and
iv. providing access to information and guidance to those wanting to
divest.
75. The Divestment Member Working Group has offered challenge and critical
friend support, alongside a locality and community input.
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Expertise and democratic accountability
76. Between them, the Councillors have considerable business expertise and a
detailed knowledge of their constituencies which has meant that they have
been well placed to develop divestment plans and pose some apposite
questions associated with the divestment strategy.
77. The Divestment Member Working Group has provided democratic
accountability and input to a process which might otherwise be deemed too
officer centric. The Divestment Member Working Group has offered advice
and guidance to inform the Council to bring an openness and accountability
to the development of the divestment process.
78. As elected members for their constituencies, the Divestment Member
Working Group has provided an opportunity to be open and transparent
about the process and has offered people the opportunity to participate in,
and influence, the policy making process.
Linking place and divestment
79. Going forward, it will be essential to link the Divestment Member Working
Group with the Community Capacity Member Working Group. Members of
these groups already attend each others’ meetings to ensure that
conversations happen once and that messages are not duplicated or
distorted.
80. This approach links the three different types of divestment; those through
which we are learning about divestment (the Early Adopters); those driven
by the need for savings and income generation (the ‘big ideas’); and the
‘Your Place’ divestments (introduced earlier in the report) which are
intended to build social capital and capacity in the community to support
local services in the longer term.
Critical friend and challenge
81. The Divestment Member Working Group receives regular updates on the
‘big ideas’ and the Early Adopters and has provided critical friend challenge
to encourage the exploration of options and opportunities.
82. The Divestment Member Working Group has also taken the opportunity to
learn about the enablers to divestment such as HR, legal and procurement
and issues associated with property in order to help shape corporate
thinking. Using this information they have been able to develop a
knowledge that will be useful to the Council in the future.
83. The Divestment Member Working Group has highlighted issues that need to
be addressed when considering each individual divestment; in particular,
the need for clear principles behind divestment decisions, for example:
15
i. In what circumstances would the Council underwrite redundancy or
pension costs?
ii. When should the Council transfer properties?
iii. How does the Council address ‘State Aid’ and procurement issues?
84. The Divestment Member Working Group is clear that each individual
divestment presents its own set of issues and opportunities and in
implementing ideas there will be an element of learning as proposals are
taken forward.
85. Looking ahead, the Divestment Member Working Group will need to return
to the strategic divestment picture and link with the Community Capacity
Member Working Group. It will need to look at decision making processes
and oversee the overall progress of divestment. It will also need to work
with other groups across the Council to link divestment and prioritisation
around savings.
86. Finally, alongside internal challenge, the Council will need to look externally
for a critical friend and challenge role. To date, the challenge to ideas and
concepts has been largely internal and, whilst useful, does not make use of
the expertise which exists across the public sector and both inside and
outside Suffolk. Such a challenge group needs to bring new thinking into
Suffolk and point to examples of success and what is working elsewhere.
Managing progress and sharing learning
87. One of the priorities of the Early Adopter divestments has been to learn
from the preparation and planning stages and to socialise that learning with
other ‘Divestors’ and ‘Divestees’ in order to better understand the
opportunities and difficulties that might be associated with divestment.
88. Key to this learning will be bringing together advice and information from the
services which support and advise on divestment (HR, Legal, Procurement,
Finance and ICT). This needs to sit along learning and experience from
elsewhere. The learning gathered to date is being collated and will be made
widely available. It will include:
i. Designing and planning your business
ii. Vehicles and models for divestment
iii. HR questions answered – dispelling the myths
iv. ICT questions answered – dispelling the myths
v. Property principles
vi. Procurement – when and when not to procure
vii. Funding your enterprise – grant aid and grant-in aid
viii. Social investment
ix. Contacts for divestment
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89. This is not a definitive list, but gives an indication of the information that will
be made available by the end of March 2011.
90. As outlined earlier in the report, this information needs to be constantly
revisited and updated. Learning from the external challenge is fed into
divestment plans.
91. The next stage in the Divestment process is to implement the Early Adopter
projects, to ensure learning is embedded for further divestment projects and
to provide advice and recommendations on ways forward and means of
unblocking barriers.
Progress on the Big Divestment Ideas
Health and Care Trusts
92. Work to determine the approach to implementing Health and Care Trusts
has now begun. A tender exercise was held in January 2011 and the
Council has now engaged the Office of Public Management (OPM) for thirty
working days to take forward a specific piece of work; engaging
stakeholders in the development and appraisal of options for the future of
health and social care. This piece of work is designed to provide an
independent assessment of potential models for Health and Care Trusts,
how they might work and to develop relationships across Suffolk to support
implementation. Specifically, it will develop and assess options for system
redesign and outsourcing of health and social care services in Suffolk and
will:
i. Investigate approaches being developed in other areas to integrate
health and social care delivery and the potential links with Health and
Wellbeing Boards and GP Commissioning Consortia;
ii. build on the work already underway to support local authorities and their
partners to integrate health and social care;
iii. look at the levels at which different types of services are most
effectively and efficiently provided i.e. what is most appropriate to be
delivered at county level, where does it make sense to deliver at a more
local level and what this would look like?;
iv. provide an analysis of the potential of different types of agencies to take
on delegated responsibilities, and an assessment of the business
viability issues and risks (and therefore the costs) associated with
different approaches;
v. outline the statutory social care functions that local authorities and
partners must provide;
vi. present evidence about effective systems that promote and enable
personalisation; and
vii. address the implications for the statutory accountabilities and
democratic mandate of the Council.
17
93. The first Care Stakeholder Engagement event was held on 8 February 2011
bringing together over forty participants from the voluntary and community
sector, health organisations and the county, district and borough councils to
contribute ideas around what any model might look like, who might be
involved and how it might be constituted to provide the best outcomes for
Suffolk.
94. A second event is to take place on 22 March 2011. By this time, OPM will
have turned the outputs from the workshop and interviews from
stakeholders across Suffolk into a set of options. Proposals for a way
forward will be brought to the Council for consideration.
Integrated Highways Service
95. Highways services in Suffolk are currently delivered by a mixture of inhouse
and external provision. This has worked well, but further
improvements and efficiencies will require a more unified service. This will
ensure that the most efficient use is made of people, plant and materials
within the service as a whole, as well as reducing the processes involved in
conceiving, planning, designing and constructing maintenance and
improvement work. New arrangements for Suffolk would come into effect
from 1 April 2013, when current contracts expire.
96. The key outcomes for Suffolk are to reduce costs and support the Suffolk
economy and, before selecting a preferred option, it is important to
understand how potential providers believe the key outcomes can be
achieved.
97. There are several possible options for the divested service. One of these is
for a joint procurement, and potentially a joint service, with Norfolk County
Council. A process of formal market engagement is therefore planned,
which will be undertaken jointly by both Councils.
98. A Programme Board for Suffolk has been set up and discussions between
Portfolio Holders in Norfolk and Suffolk are being held. If both authorities
decide to proceed with a joint option, then formal joint programme
governance will be established.
99. Option evaluation and formal decision making will need to be completed
relatively quickly, whether or not a joint arrangement is selected. The
formal procurement process will need to begin later this year. Cabinet will
be asked to agree the form of the highways divestment and to approve the
start of the formal procurement process.
Towards a Learning Trust
100. Work on the development of a Learning Trust in Suffolk comes on the back
of the Government’s plans published in its White Paper, “The Importance of
Teaching”. This sets out a strategic role for local authorities as the
18
“champions” for Educational Excellence, parents and families and
vulnerable pupils.
101. It suggests that local authorities will be freed up to discharge these
responsibilities in the best possible way, with far less top down prescription.
It is important to recognise that statutory roles around place planning,
admissions, transport and finance remain with the local authority.
102. Whilst school budgets have been given some protection from spending
cuts, budgets that support local authority functions have seen big
reductions; the Inclusive Schools Improvement Service budget has been
halved by loss of funding. With this in mind, the Council has to develop a
different model of achieving its education priorities, and in particular to
continue to raise the attainment of children in Suffolk.
103. The Learning Trust model would incorporate the Learning and Improvement
Service, Infrastructure Team and Schools Finance. It would cover all
statutory support to schools and be focused on the support to those
institutions from 3 to 19 providing for learning. It would not be a provider,
but a commissioner of services offering support and challenge to the Suffolk
education system.
104. In terms of the development of the Learning Trust model, the new Learning
and Improvement Service will be launched in April 2011. It is proposed that
the Learning and Improvement Service, Infrastructure Team, and Schools
Finance are brought together as a Learning Trust within the Council by April
2012. A Learning Trust would then be developed outside the Council by
April 2013, allowing time for governance and accountability issues to be
resolved.
105. Key issues for consideration in the development of the Learning Trust will
be:
i. Governance - how do schools, elected members, and other have a say
in the Learning Trust?
ii. Accountability – how does the Council still remain accountable for these
core statutory functions?
iii. Scope – some issues around what is in scope of the Learning Trust,
such as aspects of early Years and Special Education Needs (SEN).
Progress on the Early Adopters
106. A number of ‘Early Adopters’ divestment projects have been chosen
through which we will learn about the challenges, issues and opportunities
afforded by divestment. The Early Adopters have been chosen because
they represent a good cross section of the business, but also because they
each pose very different challenges and because they are lower risk.
107. Each Early Adopter is managed by a lead from the appropriate service and
is supported by a lead officer from the corporate centre of the Council. This
19
has allowed day to day challenge and support; the establishment of links
across to other services and divestments; and the unblocking of potential
issues arising from the divestment process.
108. The Early Adopters are:
i. Suffolk Heritage Trust: Taking forward an opportunity to link the Council
heritage services (archaeology and records) with the Museum for East
Anglian Life to create a Heritage Trust for Suffolk.
ii. Registrars: An opportunity to further modernise and streamline this
service, with a view to becoming self supporting to be fully divested.
iii. Learning & Enterprise Access Points (LEAP): The opportunity to create
a Suffolk LEAP Co-operative comprising of UCS and other adult
education providers to provide a more ‘joined up’ adult learning and
skills service external to the Council.
iv. ‘Realise’ – adult learning, careers advice and guidance: Creating a
social enterprise to provide adult learning and job opportunities for
people with learning disabilities (includes Whitehouse Enterprises and
Growing Places).
v. Outdoor Education Centres: The opportunity to make these services
available through external providers, including colleges and other
charitable trusts.
vi. Suffolk Traded Services: the opportunity for one of the Councils most
successful income generating business to become a wholly owned,
arms length business which will allow it to grow and increase its return
on investment. The Divestment Working Group were supportive of this
idea.
109. As outlined earlier, the Divestment Member Working Group has been
working through some of the questions raised around principles of
divestment and it is clear that there will not be a ‘one size fits all’ solution.
The Council will need to consider its approach to procurement, its views on
property ownership and its ability to work flexibly, quickly and creatively to
take advantage of opportunities. It will need to consider how it deals with
regulation and blockages so that divestment can be implemented as quickly
and cost effectively as possible.
110. This approach means the Council will need to be more risk aware, but less
risk averse. The Divestment Member Working Group will need to champion
this change.
The development of ‘Your Place’
111. Alongside the ‘big ideas’ and Early Adopters, a number of services have
been identified as being more suited to a local community based approach
to divestment. These are collectively referred to as ‘Your Place’ and could
include those services currently subject to consultation, such as Libraries,
as well as those facing budget cuts in 2011/12, such as Country Parks,
Youth Clubs and School Crossing Patrols.
20
112. The concept of ‘Your Place’ is introduced earlier in the report and the
ambition is to have a co-ordinated conversation about the breadth of
services in a place rather than a series of unconnected discussions which
may prohibit creative local problem solving.
113. Currently the different services referred to above are seeking expressions of
interest from local communities. These could be ideas and initial proposals
put forward by town and parish councils, community groups, members of
staff or private sector organisations and are likely to vary from place to
place. In some localities there will be multiple services and expressions of
interest which will require considerable community development resource,
whereas in some localities there may be limited additional resource
required.
114. We are already starting to see discussions taking place in local
communities about different use of local assets to provide services. In Eye,
for example, conversations have started looking at the number of council,
and the wider public sector, buildings in the town and how these could be
used to deliver public services in a different way. These discussions include
the local Councillor as a convenor of local and council interests.
115. It is envisaged that Councillors would play a central role in communities in
taking these ideas from expressions of interest to enabling local solutions.
116. The idea of ‘Your Place’ emphasises the important relationship between
divestment and community capacity and the practical development of ‘Your
Place’ is outlined below under the work of the Community Capacity Member
Working Group.
Community Capacity
117. The Community Capacity Member Working Group started with an
investigation into community capacity building as a concept, which
concluded with an agreement to an approach based on a model developed
by the Carnegie Trust. The model, from the publication ‘A Manifesto for
Rural Communities’ centres on three principles, equally applicable to urban
and rural settings:
i. Growing the capacity of local people, agencies and professionals who
support communities; building strong social networks founded on high
levels of volunteering and skilled support.
ii. Enhancing community assets of all kinds.
iii. Effective community led planning and stronger local governance.
118. By ‘community assets’, it is important to emphasise that this does not simply
mean buildings and the box below explains the ‘7 Capitals Framework’
adopted by the Carnegie Trust.
21
The Seven Capitals Framework
119. The Community Capacity Member Working Group has looked for a
mechanism for turning the concept into a practical reality and the ‘Your
Place’ approach, being suggested for divestment of locally based services,
presents a real opportunity in this regard.
120. For it to be successful, ‘Your Place’ will need to bring together all the New
Strategic Direction themes. It is a local, political process, so will need to
ensure that democracy is at its heart, by Councillors taking a lead. We will
need capacity in communities to take the services on and will need to
support the process by putting in place some of the functions that have
been identified for the strategic council such as market making, information
and analysis and a different kind of democratic support.
121. ‘Your Place’ is a very practical way of taking forward the community
capacity building New Strategic Direction theme and the box below sets out
how ‘Your Place’ would work in practice:
22
The ‘Your Place’ process
122. Currently ideas and expressions of interest are coming into the Council
through a variety of different routes. This is to be encouraged although
there is a need to provide a single point of collation to ensure that these are
not lost. By creating a master list for all ‘Your Place’ expressions of interest,
it will enable officers to interrogate the data by locality and develop a coordinated
approach.
123. The Council is working with SALC and partners from the VCS congress to
review all ‘Your Place’ expressions of interest and identify resources to work
with Councillors to develop these expressions of interest into different
models of service delivery in localities.
124. We are starting to receive requests to meet with local community leaders
and representatives and in some places conversations are already
underway. For example, in Debenham, discussions have already
commenced with the ‘Youth Club Support Group’ to look at the future
options for the provision of the youth club in Debenham. The initial meeting,
involved local residents, the Parish Council, Church Group, Young Suffolk
and the local Councillor supported by officers. These discussions need to
be joined up with conversations taking place about the future of the library
in Debenham.
125. In other areas, including Bungay and Long Melford, we are being contacted
to talk about local services including Libraries and Country Parks. In
Stowmarket, we have been invited to meet with the newly formed
Stowmarket Town Centre Partnership to discuss the implications of the
current reduction of public sector spending and opportunities for “brokering”
the transfer of activities to the Partnership and other organisations. In
Lowestoft, local youth organisations, have expressed interest in taking on
local services and assets.
126. Other areas of Suffolk have put in place new partnerships to drive
improvements in public service delivery and social outcomes. These include
the ‘One Haverhill’ partnership and the ‘Total Brandon’ initiative. Both bring
together all three tiers of local government, other public sector partners and
community representatives to look at how services are delivered in the area
and influence future delivery. In Brandon, this has included ‘resource
mapping’ which looks at how the Council spends its money locally and what
proportion of this money could be spent differently to achieve better
23
outcomes. This discussion sits alongside conversations on the future of
assets such as the Country Park and Community Centre / Library in
Brandon.
127. It is recognised that some geographical areas are better equipped than
others and that there may be communities which require additional resource
to grow community capacity. With that in mind, the Council and its partners
are also looking at where there are no expressions of interest and will work
with the divestment groups and the local Councillor, or Councillors, to take a
problem solving role, identifying and overcoming barriers.
128. The role of the Councillor is central to the development of community based
solutions. Where there is more than one interested party, the Councillor can
encourage collaboration and potentially avoid the need for costly
competition processes locally.
129. Community engagement is a core theme that runs through the whole New
Strategic Direction programme and the Council will develop officers to
support Councillors in their localities. The need for new skills and
behaviours for officers has been a theme in the work of the Strategic
Council and Democracy Member Working Groups. The New Strategic
Direction represents a departure from the traditional service based methods
of operation.
130. Once a local solution has been developed, it will be important to ensure
future sustainability. Council support will be needed through the
implementation phase and, although this support will reduce over time, the
‘Your Place’ approach represents a new and different relationship between
the Council and local communities which is at the heart of the New Strategic
Direction. Looking ahead, this is an opportunity for true local determination
for local public services, where decision making around the shape of local
services is taken locally and where the Council funding could be offered to
local communities for them to make the decisions about how it is spent.
Democracy
131. The focus of the Democracy Member Working Group has been on how best
to support Councillors in exercising their democratic role as the Council
moves forward with implementing the New Strategic Direction. It is looking
at the role of the Councillor in an environment where services currently
delivered by the Council are delivered by a diverse range of external
enterprises, following divestment.
132. To date, the Democracy Member Working Group has linked its work to the
approach being taken by the Local Government Leadership’s 21st Century
Councillor Programme. This has enabled the Democracy Member Working
Group to access funded support from Local Government Leadership.
133. Using the 21st Century Councillor Model to guide the process, a Role
Profile has been developed for Councillors. This profile has now been
consulted on, and has been generally supported by members. Each
24
element of the role profile has been linked to associated skills and
knowledge.
134. Having identified the kind of skills and knowledge Councillors are likely to
need, we need to put in place a training and development offer. There are
three aspects to this:
i. A practical guide for all Councillors for bringing communities, local
organisations and local social entrepreneurs / influencers together to
find alternative ways of providing local services.
ii. Designing and delivering a programme of practical skills training for all
Councillors in delivering change, based on what they say they need.
This needs to include exposure to development opportunities that will
support culture change; this will involve a degree of integration between
Member and officer development.
iii. Learning by practising – a system for helping Councillors to learn by
trying new things together. The introduction of a ‘buddying’ system
could help with this.
135. Local Government Leadership colleagues are clearly interested in what we
are doing in Suffolk and have agreed to provide further support.
Conclusion
136. Although a relatively short amount of time has elapsed since the last report
to Council on 2 December, the implementation of the New Strategic
Direction has gathered pace.
137. This pace needs to be quickened if the benefits of new ways of working are
to avoid the need for crude service cuts in future years. It is inevitable that
there will need to be reductions in service as a result of loss of funding and
cost pressures over the next four years totalling between �110million and
�125million. The New Strategic Direction aims to keep these reductions to a
minimum by identifying new ways of working, new vehicles for delivery and
reducing the overheads of the Council.
138. Key features of this include the ‘big idea’ divestments which account for
large sums of money and also local place based solutions which hand
control for local services to local communities. Social investment can impact
on and reduce future demand pressures and provide new partnerships and
models for solving some of the big challenges we face in Suffolk.
139. To achieve transformation change, it is clear that the Council needs to
change. There is a need for a fundamental cultural and behavioural change
for officers of the Council and a shift to greater locality working. Our current
approaches will not work in the future and we need to start behaving as the
new organisation we want to become. There will be further reports back to
the Council on progress being made as well as reports on the decisions
which lie ahead.
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Sources of Further Information
a) Council report 24 September 2009 agenda item 8; Implementing the New
Strategic Direction.
b) Cabinet report 20 July 2010 agenda item 10; Implementing the New
Strategic Direction: A Model for Reshaping the Council.
c) Minutes of the Cabinet held in the Council Chamber, Endeavour House,
Ipswich on 20 July 2010.
d) Council report 23 September 2010 agenda item 7; Implementing the New
Strategic Direction.
e) Minutes of the Council meeting held in the Council Chamber, Endeavour
House, Ipswich on 23 September 2010.
f) Council report 2 December 2010 agenda item 8; New Strategic Direction
Update.
g) Minutes of the Council meeting held in the Council Chamber, Endeavour
House, Ipswich on 2 December 2010.
h) Localism Bill
(http://www.communities.gov.uk/localgovernment/decentralisation/localism
bill/)
i) Health and Social Care Bill
(http://www.dh.gov.uk/en/Publicationsandstatistics/Legislation/Actsandbills
/HealthandSocialCareBill2011/index.htm)
j) Education Bill
(http://www.education.gov.uk/aboutdfe/departmentalinformation/education
bill/a0073748/education-bill)
k) Early Intervention: the Next Steps – An Independent Report to HM
Government (http://www.dwp.gov.uk/docs/early-intervention-nextsteps.
pdf)
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