are we there yet? - the learning exchange · • there is substantial local variation, in part...

Are we there yet?Improving governance and resource management in children’s trusts

Local government

National report

October 2008

© Audit Commission 2008This document is available on our website at: www.audit-commission.gov.uk

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The Audit Commission is an independent watchdog, driving economy, efficiency and effectiveness in local public services to deliver better outcomes for everyone.

Our work across local government, health, housing, community safety and fire and rescue services means that we have a unique perspective. We promote value for money for taxpayers, covering the £180 billion spent by 11,000 local public bodies.

As a force for improvement, we work in partnership to assess local public services and make practical recommendations for promoting a better quality of life for local people.

Summary 4Recommendations 71Introduction 92Changingmessages 11Changesinexpectationsfromgovernment 11Evolvinggovernmentpolicycausedconfusion 12Thenewpolicyagendaforlocalareas 16Futurelegislationandguidanceneedstobeconsistentbetweenchildren’strustsandlocalstrategicpartnerships 183Formshouldfollowfunction 21Allareasareestablishingchildren’strustboards 23Children’strustarrangementsvaryacrossthecountry 24Evolvingguidancehascausedconfusion 27Partnersarewellrepresented 28Mostchildren’strustsareengagingkeypartners 33Governancearrangementsareinplace 34

Contents

Contents|Arewethereyet?|1

4Improvingoutcomesforthefuture 39GovernanceandaccountabilityarrangementswiththeLSP 39Commissionjointly 40Influencemainstreamresources 46Aligningorpoolingbudgets? 49Valueformoney 53Resourcemanagement 55Improvethewaypartnersareinvolved 57Engagekeypartnersmorefully 58Schools 58Voluntaryandcommunitysector 59Districtcouncils 61Improvingpartnershipunderstandinganddelivery 61Managingperformance 635Conclusions 65

Contents

2|Contents|Arewethereyet?

6Selfassessmenttoolforchildren’strustsboards 67Howfardoesthechildren’strustfocusonimprovingoutcomesforlocalchildrenandyoungpeople? 67Howdoestheboardoverseetheeffectiveuseofresources? 68Whataretherolesofthechildren’strustpartnersindeliveringimprovement? 69Howdoestheboardeffectivelyconsult,engagewith,andinvolvekeystakeholders? 70Howdoestheboardsupportlocalcapacitybuildingandcapabilitydevelopment? 70Howaregoodgovernanceandtheprinciplesofpubliclifedemonstratedbytheboard? 70Howdoestheboardmanagerisksandexercisepropercontrols? 71Appendix1:Studymethodandresearch 72Appendix2:ExternalAdvisoryGroup 74Appendix3:Glossaryofterms 75Appendix4:References 79

Contents|Arewethereyet?|3

Localpublicservicesneedtoworkwelltogethertointegrateservicesforchildren

• In2003centralgovernmentmadejointworkingapriorityfollowingtheLamingInquiryintothedeathofVictoriaClimbié.

• Sincethen,legislationandguidancehasrequiredlocalpublicbodiestoworktogetherthroughchildren’strusts.

• Mostareaswereexpectedtohavechildren’strustsby2006–andallby2008.

• Therewasconsiderablelocalconfusionaboutwhether‘children’strust’meantanewstatutorybodyormandatedpartnershipworking.

• Thirty-onepercentofdirectorsofchildren’sservicessaidtherewasconfusionaboutthepurposeofchildren’strustsinearly2008.

FiveyearsaftertheLamingInquiry,thereislittleevidencethatchildren’strustshaveimprovedoutcomesforchildren

• Almostallareashadrevisedthewaychildren’sserviceswerecoordinatedbyApril2008.

• Thereissubstantiallocalvariation,inpartreflectingdifferentcircumstances.

• Inmostareascollaborativeworkinghasimproved,butthenewarrangementshaveyettosettledown.

• Thereislittleevidencethatmainstreamfunding,forexamplefromsocialservices,educationandtheNHS,hasbeenredirectedorthatperformancehasbeenmanagedacrossservices.

• Asaresult,thereislittleevidencethatchildren’strusts,asrequiredbythegovernment,haveimprovedoutcomesforchildrenandyoungpeopleordeliveredbettervalueformoney,overandabovelocallyagreedcooperation.

Summary

4|Summary|Arewethereyet?

Summary|Arewethereyet?|5

EveryChildMattershasprovidedaclearfocusforlocalagencies

• Mostlocalagenciesareengagedinchildren’strusts:boardsmeetregularlyandareusuallywell-attended.

• MostboardsaresupportedbyworkinggroupsbasedontheEveryChildMattersthemes.

• PCTs,thepoliceandschoolsfeeltheycaninfluencethewaychildren’strustsoperate.

• Theprivateandthevoluntaryandcommunitysectorsarelessengaged,despitetheirlargecontributiontochildren’sservices.

• Schoolsareoftenrepresentedonchildren’strustboards,butindividualschoolsneedtobemuchmorecloselyengaged.

Children’strustsneedtodevelopsubstantiallyiftheyaretobringtheintended benefits

• Fewchildren’strustsdrawacleardistinctionbetweenstrategic,executiveandoperationalissues.Strategicboardsshouldbesupportedbysub-groupsworkingatexecutiveandoperationallevels.

• Mostareaswillhaveajointcommissioningstrategyby2008,buttheselackimpactbecausethereislittleexperienceorknowledgeofjointcommissioning.

• Earlyjointcommissioningbuiltonjointworkinginspecificservices,suchaschildandadolescentmentalhealthservicesandservicesfordisabledchildren.

• Children’strustboardshavelittle,ifany,directoversightoffinancialorbudgetmatters,andperformancemanagementsystemsareunderdeveloped.

• Manyrepresentativesonchildren’strustboardslackamandateforcommittingtheirorganisations’resources,andsystemsforreportingbackarerarelysystematic.

Areasprefertoalignresourcesthantopoolbudgets

• Localagenciesaligntheirfinancial,physical,andhumanresourcesinmostchildren’strusts.

• Mostpoolingofbudgetsinvolvesserviceswithahistoryofcooperationthatoftenpredateslocalchildren’strustarrangementsandhasenabledjointcommissioning.

• Earlyemphasisonpooledbudgetsunderestimatedboththepracticaldifficultiesandpartners’reluctancetocontributemoney,asopposedtootherresources.

• Centralgovernmentshouldcontinuetoremoveobstaclestopooledbudgets,butshouldnotmandatethem.

Governingpartnershipsiscomplex,butfurthermandatedchangecouldcausefurtherconfusion

• Principlesofgoodgovernanceapplytopartnerships,buttheprocessesneedtobedifferentfromthoseofautonomousorganisations.

• Governancearrangementsmustfocusondeliveringbetteroutcomesforlocalchildren,youngpeople,andtheirfamilies–notjuststructuresandprocesses.

• Localstrategicpartnerships(LSP)nowhaveastrategicroletodeliverlocalareaagreements,sochildren’strustsneedtoworkeffectivelywiththem.

• CentralgovernmentshouldfollowtheintentbehindtheLocalGovernmentandPublicInvolvementinHealthActbyspecifyingoutcomesandagreeingprioritieswithlocalagencies,butleavingthemtomakelocallyappropriatearrangementsfordelivery.

Summary

6|Summary|Arewethereyet?

Centralgovernmentshould:

• emphasisewhattoachieveinanupdatedsinglesourceoffutureguidance,ratherthanspecifyorganisationalformsorprocesses;

• giveconsistent,cross-departmentalsupporttolocalcollaborativeworkingbetweenchildren’strusts,LSPsandotherthematicpartnerships;

• alignfinancialaccountingandperformancereportingframeworks,tomakeiteasierforlocalpublicbodiestounderstandoneanother’scontributionsandchallenges,andalignresourceslocally;

• createopportunitiesforappropriatefinancialprocesses(aligningorpooling)ratherthanprescribingthem;

• encouragethenewlycreatedCentreforExcellenceandOutcomesinChildren’sServicestosupportchildren’strustsbybenchmarkingperformanceandsharinggoodpractice;and

• useacommondefinitionof‘commissioning’forlocalgovernment,theNHSandthepolice.

Localcouncilsandotherlocalagenciesshould:

• reviewcurrentgovernanceandmanagementarrangementsforchildren’sservicestofocusondeliveringimprovedoutcomes;

• usetheself-assessmentquestionsinthisreporttohelpthemimprovethewaytheywork;

• engage‘missingpartners’intheirchildren’strustarrangementsinawaythatbringsbenefitswithoutbureaucracy;and

• improvemechanismsforinvolvingchildren,youngpeopleandparentsinchildren’strusts,drawingonguidancefrom11MillionandtheNationalYouthAgency.

Recommendations

Recommendations|Arewethereyet?|�

TheAuditCommissionwill:

• withotherlocalinspectorates,usethelessonsfromthisstudyindevelopingComprehensiveAreaAssessmentanduseofresourcesmethodologies;and

• workwithCIPFAtoprovidepracticalguidanceonimprovingfinancialmanagementinchildren’strusts.

Recommendations

�|Recommendations|Arewethereyet?

1 TheLamingReport(Ref.1)onthedeathofVictoriaClimbiérecommendedthatservicesforchildrenandyoungpeopleshouldbecomemoreintegrated,bringbettercoordinationofservicesforchildrenandtheirfamilies,andbettermanagementofinter-agencywork.ThegovernmentsawthisasahighpriorityandtheSecretaryofStateforHealthproposedthatchildren’strustsshouldbeestablishedlocally,tobringhealthandsocialcareofchildrenunderonemanagementstructure.Thirty-fivepathfinderpilotswererun.

2 InSeptember2003,thegovernmentpresentedEveryChildMatters(Ref.2)toParliament.TheChildrenActfollowedin2004toprovidethelegalbasis.Thegovernmentexpectedmostareastohavechildren’strustsby2006,andallareastohavethemby2008.However,bythistimeresponsibilityforallchildren’sserviceshadbeencentralisedintheDepartmentforEducationandSkills(DfES),anditdidnotproposethatchildren’strustsshouldbestatutorybodies.Localpublicbodiesimplementingthegovernment’spolicyhavebeenconfusedaboutwhethertheyneededtoestablishanewformofstatutorybodyoranewformofpartnershipworking,calledchildren’strustarrangements.

3 Children’strustsareunincorporatedassociationsIofthekeyagenciesinvolvedindeliveringpublicservicestochildrenandyoungpeoplein

1Introduction

theirarea.Children’strustsdonotownassets,oremploystaff.Theyarenotlegallyaccountablebodiesforspendingpublicmoneyorforachievingpublicobjectives.But,theydoadviseandinfluencelocalaction.Decisionsmade–orprinciplesagreed–bychildren’strustscaninfluencethedeploymentofstaffandotherresources,includingtheuseofassets.

4 ThisreportpresentsthefindingsfromresearchundertakenbytheAuditCommission,intotheprogresslocalcouncilsandtheirpartnersaremakingindevelopingchildren’strusts.

5 Theaimsoftheresearchweretolookat:

• thegovernanceandaccountabilityarrangementsforchildren’strusts;

• thewayresourcesarebeingusedbychildren’strusts;and

• howchildren’strustsrelatetolocalstrategicpartnerships(LSP)andlocalareaagreements(LAA).

6 Thefindingsinthisreportarebasedonsurveysofpeopleinvolvedinchildren’strusts:

• interviewsineightareaswitharangeofstakeholders;

• insightsfromjointareareviews;areviewofgovernmentpolicy;

• academicandpracticaladviceaimedatpractitioners;and

I A definition of unincorporated associations is in the glossary of terms at the end of this report.

Introduction|Arewethereyet?|�

• theAuditCommission’spreviousworkonpartnershipworkingandcorporategovernance.

FieldworkforthisreporttookplacebetweenNovember2007andFebruary2008.

� Thisreportassessestheprogressofchildren’strustsuptoApril2008.Thereislittleevidencetoshowthatthechangeshavebroughtimprovedoutcomestochildrenandyoungpeopleand,sincechildren’strustsarelessdevelopedthanmighthavebeenexpected,itmaybetooearlytomakeanassessment.Butitisnottooearlytoidentifypotentialimprovementsthatareneededifallchildren’strustsaretoimprovethelivesofvulnerablechildren.

� Thisreportalsoidentifiesissuesthatcentralgovernmentwillneedtoconsider.LegislationandguidancesincetheLamingInquiryhascausedsomeconfusionlocally,andanyfurtherchangeneedstobringgreaterclarityaboutpurposesandframeworks.Guidanceshouldalignwiththegovernment’sprinciplesforrelationsbetweencentralandlocalgovernment.

� Thereportisstructuredasfollows: • chapter2outlinestheleadership

rolethatgovernmenthasfulfilledinthedevelopmentofchildren’strusts,alongwithsomeofthemixedmessagesidentifiedbylocalpublicbodies;

• chapter3considershowthefunction,andhencetheform,ofchildren’strustsneedsgreaterclarity;

• chapter4considershowchildren’strustscanmakegreaterprogressinimprovingoutcomesforchildrenandyoungpeople;and

• chapter5outlinestheconclusionsfromthisstudy.

10 Aseparatepulloutprovidesanumberofkeyquestionsforchildren’struststoaddress,abouttheirgovernanceandaccountabilityarrangements,aswellasthewaytheymanageresources.

11 Tosupportchildren’strustsinreviewingtheirownprogress,theAuditCommissionhasproducedadditionalresourcestoaccompanythisreport:

• areportofthemainsurveyresultsfromdifferentlocalstakeholders,whichshouldallowchildren’strustsboardstocomparewheretheyarewithotherareas;and

• aselfassessmenttoolthatchildren’strustboardscanusetoassesstheirgovernanceandaccountabilityarrangements.

12 ThesecanbeaccessedviatheAuditCommission’swebsiteatwww.audit-commission.gov.uk/childrenstrusts

13 Workingwiththeotherlocalservicesinspectorates,theCommissionwilltakethefindingsofthisreportintoaccountintheComprehensiveAreaAssessmentthatcommencesinApril2009.

Introduction

10|Introduction|Arewethereyet?

Changesinexpectationsfromgovernment

14 TheLamingReport(Ref.1)onthedeathofVictoriaClimbiérecommendedmoreintegratedservicesforchildrenandyoungpeopleandtheformationoflocal‘committeesofmembersforchildrenandfamilies.’Thesecommitteeswouldensurebettercoordinationofservicesforchildrenandtheirfamilies,andbettermanagementofinter-agencywork(Ref.3).

15 Butworkingeffectivelyinpartnershipisachallenge.TheEveryChildMattersGreenPaperpublishedinSeptember2003proposedthedevelopmentofformalchildren’strustsalongsimilarlinestocaretrusts,whichwereintroducedbytheDepartmentofHealthforadultservicesin2002.CaretrustsareatypeofNHSbody.Theirpurposeistoprovidehealthandsocialcarethat’sbetterintegrated,bycombiningNHSresponsibilitiesandlocalauthorityhealthresponsibilitiesunderasinglemanagementstructure.Fromthestart,theuseoftheword‘trust’ledsomepeopletoassumethatthegovernmenthadintendedtheretobeanewformofstatutorybodyresponsibleforchildren’sservices,bearinginmindthedifferentuseofthewordforNHSfoundationtrustsandtrustschools.Thissowedtheseedsoflater–andcontinuing–confusion.

2Changingmessages

16 AlthoughtheoverallobjectivesoftheGreenPaperwerewelcomed,theproposalsforchildren’strustsweremorecontroversial.Governmentrespondedwithalessprescriptiveapproachandmoreopportunitiesforlocaldiscretion.Thisalsomeantthatnationalpolicymessageswerelessclear,andtherapidevolutionofpolicycausedsomestakeholderstoperceivemixedmessagesfromgovernment.TheconfusionwasnotfullyresolvedbytheguidanceandadviceissuedfollowingtheChildrenAct2004,whichdidnotovercomedifferencesinorganisationalcultureandprioritiesbetweenpartneragencies.

1� SincetheLamingReport,centralgovernmenthasbeenactiveinrequiringlocalpublicbodiestochangethewaythatchildren’sservicesaremanaged.Therehasbeenalotoflegislationandguidance,butafailuretocommunicatethechangingemphasiseffectivelyhasledtolocalconfusionaboutwhatthegovernmentmeantbytheterm‘children’strust’,andwhatthegovernmentexpectedtobeputinplace.

Changingmessages|Arewethereyet?|11

Evolvinggovernmentpolicycausedconfusion

1� InJanuary2003theSecretaryofStateforHealth(Ref.4)invitedhealth,socialservicesandotherpartnerstobecomethefirstchildren’strusts,with

‘local services for children […] running through a single local organisation.’

1� Children’strustswouldbemodelledoncaretrusts,withservicesforchildrencentredontheneedsofeachchild:

‘nothing – no existing structures – should be allowed to stand in the way.’

20 TheDepartmentofHealth(DH)theninvitedareastobecomepilotpathfinderchildren’strusts‘joiningupeducation,socialcareandhealthservices’.ThecorepartnerswerethelocalauthorityandthelocalNHS,whichwereallowedtopoolchildren’scarebudgetsunderexistinglegislation(Ref.5).Thepurposeofchildren’strustswasoutlinedas:

‘bring[ing] together services working with children within one organisational structure.’ (Ref. 4)

21 Thirty-fivepathfinderchildren’strustswereannouncedinJuly2003.Theirkeyfeatureswerepooledbudgets,area-wideneedsassessments,informationsharing,workforceplanning,joint

agencycaseassessments,andmulti-agencyworkingontheground.

‘The government’s long term vision is to integrate key services within a single organisational focus. The preferred model for achieving this integration is children’s trusts. Most areas should have trusts by 2006.’

22 In2003Whitehallresponsibilityforallchildren’sservicestransferredtoDfES.InSeptember2003,thegovernmentpresentedEveryChildMatters(Ref2)toParliament,withtheagreementofministersacrossWhitehall.EveryChildMattersisatenyearchangeprogramme,whichbeganin2003,tobringimprovementsinoutcomesforchildrenandyoungpeoplefrombirthto19.Localorganisationsareexpectedtoworktogether,takingtheviewsofchildrenandyoungpeoplemoreintoaccountindesigninganddeliveringtheirservices.Earlyinterventionandpreventionwasakeycomponentoftheprogramme.

23 EveryChildMattershasfivetargetoutcomes:I

• beinghealthy;

• stayingsafe;

• enjoyingandachieving;

• makingapositivecontribution;and

• economicwell-being.

I The government revised the outcomes framework in April 2008 to align more closely with public service agreements, LAAs, and the new national indicator set.

Changingmessages

12|Changingmessages|Arewethereyet?

24 Theseoutcomesarelinkedtoavalue-ledframeworkthatbrings‘workingtogether’(partnerships),developing‘newwaysofworking’(innovation),andfocusonthe‘needsofchildrenandyoungpeople’(culture)togetherasthebasisoflocalsuccess.ItalsorecognisesthattheelevenmillionchildreninEnglandhavediverseneeds,butallhavearighttouniversalservices,aswellasaccesstotargetedandspecialistservices(Figure1).

Services for children at high riskFor example: child protection,

adoption and fosteringSpecialist

Targeted

Universal

Services forfamilies with

complex problemsFor example:

Children and Families’Social Services,

targeted parenting support

Services for children and familieswith identified needs

For example: SEN and disability,speech and language therapy

Services for children in targeted areasFor example: Sure Start, Children’s Centres

Services for all children and familiesFor example: Health - GPs, midwives, health visitors,

Education - early years and schoolsConnexions - 13-19

Figure1TargetedservicesinauniversalcontextEveryChildMattersprovidesaframeworkforlocalaction

Source:DfES,EveryChildMatters,2003

25 TheEveryChildMattersGreenPaperdefinedthe‘children’strust’as‘normallypartofthelocalauthority,[reporting]...tolocalelectedmembers’with‘asingleplanningandcommissioningfunctionsupportedbypooledbudgets’.Thiswillinturndriveforward‘theintegrationoffrontlineserviceprovision.’Theexpectationwasthat‘localities…developachangeprogrammeforimplementingthe[children’strust]framework.’


26 Thiswassignificantlydifferentfromtheframeworkforthechildren’strustpathfinders,whichhadfocusedonprojectsthatlookedatspecificgroupsofchildren;particularaspectsofthelocalauthoritywork;andlimitedgeographicalareas.Howlocalauthoritieswouldworkwithpartnerstomakethishappenwasleftunclear.Manylocalbodies,alreadyconfusedaboutthestatusofchildren’strusts,perceivedmixedsignals.Thesimilartitlesofchildren’strustsandchildren’strustpathfindersaddedtotheirconfusion.TheGreenPapersuggestedthatchildren’strustscouldbuildonthe‘childrenandyoungpeoplestrategicpartnerships’alreadyestablishedinsomeareas.Mostoftheseareas,however,decidedtoestablishnewchildren’strustarrangements.

2� TheChildrenActfollowedin2004,providingthelegalbasisforEveryChildMatters.Localauthoritieswererequiredtoappointadirectorofchildren’sservices,anddesignatealeadmemberforchildren’sservices.Eachdirectorofchildren’sserviceswouldhavetoworkwithpartnerstoproduceachildrenandyoungpeopleplan(CYPP)andcreatealocalsafeguardingchildrenboard.Localauthoritiesthatwereassessedundercomprehensiveperformanceassessment(CPA)as‘excellent’and‘4star’authoritieswereexemptfromtherequirementtoproduceaCYPP,althoughinpractice,alldidso.Children’strustsweretobeaccountableforthefivenewoutcomesandwouldhelptodevelopthedirectorofchildren’sservicesrole.Theywouldbe:

‘a single planning and commissioning function supported by pooled budgets.’

Relevantstatutorypartners(dutytocooperate)

Otherpartners(nodutytocooperate)

Localauthority(children’sserviceauthority)Districtcouncils(incountyareas)PoliceandpoliceauthoritiesProbationserviceYouthoffendingteamsStrategichealthauthorityPrimarycaretrustConnexionsLearningandSkillsCouncil

Children,youngpeopleandfamiliesSchools,colleges,academies,FEcollegesPrimarycareproviders(includingGPs)NHStrustsandfoundationtrustsVoluntaryandcommunitysectorPrivatesectorJobcentrePlus

Table1Dutytocooperateinchildren’strusts

Changingmessages


Statutoryguidanceoninter-agencycooperationtoimprovethewell-beingofchildren:children’strusts(2005)

2� TheChildrenAct2004imposedadutyonlocalauthoritiestomakearrangementstoimprovewell-beingforchildren,definedbythefiveEveryChildMattersoutcomes.Named‘relevantpartners’wereplacedunderadutytocooperatewiththosearrangements.Statutoryguidanceoninter-agencycollaborationinchildren’strustswaspublishedin2005(Ref.6).Localauthoritieswerealsoexpectedtoworkwithotherlocalpartners(Table1).Thechildren’sservicesauthority(thelocalauthority)anditspartners:

‘could provide staff, goods, services, accommodation or other resources and establish and maintain a pooled fund.’

2� TheLocalGovernmentAssociation(LGA)ledaninteragencyresponse(Ref.7)tothedraftstatutoryguidanceonchildren’strusts.Thisstressedthatcooperationshouldnotbelimitedtoboardortrustmembership.Italsoraisedconcernsaboutalackofclarityovertheterms‘children’strusts’and‘children’strustarrangements’.TheLGAsaiditwasunrealistictoexpectjointplanningandcommissioningtomakeefficienciesandimproveservicesintheshortterm.Itnotedthat,inthebeginning,integrationwaslikelytobeexpensive,withanumberof‘one-off’costs.

30 Thegovernment’sresponsetoconsultation(Ref.8)explainedthat,although‘children’strustswillbeformedthroughthepoolingofbudgetsandresources’,‘achildren’strustwillnotnecessitatestructuralchangeorstafftransfers…thisisamatterforlocaldiscretion.’ItalsoexplainedthattheChildrenAct2004didnot‘createchildren’strustsasstatutoryorganisationsbutitdoesencourageandfacilitatetheirdevelopment’,andthat‘mostareasshouldhaveachildren’strustby2006sothatthereisastrongfoundationoflearninginplacetoallowallareastohaveoneby2008.’

31 The2005statutoryguidanceonchildren’strusts(Ref.6)says,inpursuitoftheApril2006deadline,that:

‘a set of arrangements, operating at every level, will be a children’s trust in action.’

32 Theessentialfeaturesofthesearrangementswere:

• achild-centred,outcome-ledvision;

• integratedfront-linedelivery;

• integratedprocesses;

• anintegratedstrategy(jointplanningandcommissioning);and

• inter-agencygovernance.


33 Theguidanceclearlyenvisagedastrategicleadershiprolefor:

‘a strong integrated governing board or structure representing all key delivery partners at senior level, determined to drive whole-system change through clear leadership and effective local change programmes…this will require sophisticated leadership of a high order to secure a genuinely joint outcome-focused vision, full engagement of all key partners, and clear lines of accountability.’

34 Theguidancewasalsoclearthatchildren’strustarrangementshadnoseparatelegalstatus:

‘children’s trusts are not legal entities, they are partnerships between different organisations who provide, commission, or are otherwise involved in delivering better outcomes for children and young people.’ (Ref. 6)

andthatlocalarrangementsshould:

‘produce integrated working at all levels, from planning through to delivery, with a focus on improving outcomes. Local authorities may choose not to call this a

“children’s trust”, but the important point is that the way of working is in place and committed to.’ (Ref. 6)

35 TheEveryChildMatterswebsite(www.everychildmatters.gov.uk)nowexplainsthattheChildrenAct2004doesnotcreateadutytosetupachildren’strust,becauseitwould:

‘have necessitated a specific and prescriptive model’ and ‘setting up a children’s trust is more of an organic process which would develop in response to local circumstances.’

36 Localauthoritiesandtheirpartnersusetheterm‘children’strustarrangements’torefertojointworking,includingthevariouschildren’spartnerships,frontlinejointworking,andotherinter-agencyprocesses.

3� Nationalpolicycontinuestoevolve.Thechallengeforgovernmentistoprovideaconsistentframeworkforlocalpartnershipworking.Governmentshouldensureithelps,ratherthanhinders,thedevelopmentofchildren’strustsinthefuture.Governmentshouldalsohelpchildren’struststodeliverimprovedoutcomesforchildren,communicateitsintentionsclearly,avoidfurtherconfusion,anddealwithexistingconfusionwithaneffectivecommunicationsstrategy.

Thenewpolicyagendaforlocalareas

3� Thewiderpolicycontextinwhichlocalchildren’strustsarrangementsoperateisalsochanging.InOctober2007,theLocalGovernmentandPublicInvolvementinHealth(LGPIH)ActreceivedRoyalAssent.TheActprovidedalegislativeframeworkforproposalsinthelocalgovernmentwhitepaper,publishedinOctober2006(Ref.9)aimedatimprovingthequality

Changingmessages


oflocalpublicservices–includingservicesforchildrenandyoungpeople.Itintendedtodeliver:

• moreresponsiveservicesandempoweredcommunities;

• astrongerroleforlocalauthoritiesascommunityleaders;and

• afundamentalshiftinthecentral-localrelationship.

TheLGPIHActputsadditionaldutiesonlocalauthoritiesandrelevantpartners,beyondthoseintheChildrenAct2004;thesewereoutlinedinjointguidancefromCommunitiesandLocalGovernment(CLG)andtheDepartmentforChildren,SchoolsandFamilies(DCSF).(Ref.10)

3� TheLGPIHActintroducedstatutorylocalareaagreements(LAAs).All150singletierandcountycouncilsbecameaccountablebodiesfordeliveringLAAs.EachLAAreflectslocalpriorities,agreedbetweenlocalpublic,voluntaryandprivatesectorbodiesinthesustainablecommunitystrategy(SCS),andnationalprioritiesnegotiatedwiththeappropriategovernmentofficeoftheregions,andagreedbytheSecretaryofState.EachLAAcontainsupto35targetsforimprovement,drawnfromthenewnationalperformanceframeworkof198performanceindicators,aswellas16statutoryeducationandearlyyearstargets.LAAssetoutadealbetweencentralgovernmentandlocalauthoritiesandtheirpartnersonprioritiesforimprovingservices,andthequalityof

lifeforlocalpeople.TheLAAistheshorter-termdeliverymechanismforthelonger-termSCS.

40 LSPpartnersareexpectedtohaveregardtothesetargetsintheirownwork.Certainnamedpartnershaveadutytocooperate.TheseincludePCTs,policeauthorities,andyouthoffendingteams.OtherLSPpartners,whodonothaveadutytocooperate,includeFEcolleges,theprivatesector,andthevoluntaryandcommunitysectors.

41 TheLGPIHActalsoestablishedanewapproachtoinspectiontobeintroducedfromApril2009.Comprehensiveareaassessments(CAA)willbemadebythesevenlocalinspectorates(includingOfstedandtheAuditCommission)workingtogether.Theinspectorateswillassesswhetheragreedtargetsarelikelytobemet,whetherlocalproblemsarebeingproperlyaddressed,andwhethertheresponsiblelocalpublicbodiesarecontributingastheyshould.Targeted,in-depthinspectionwillbetriggeredwherenecessary.(Ref.11)

42 TheChildren’sPlan(Ref.12),publishedinDecember2007,described‘anewleadershiprole’forchildren’strusts.Theywereto:

‘deliver measurable improvements’, and by 2010 ‘have consistent arrangements to provide identification and early intervention for children who need additional help.’

Changingmessages|Arewethereyet?|1�

DCSFplannedtobuildonexistinggoodpractice,andtostrengthenchildren’strustarrangements:

‘ensuring they deliver high quality in all areas rather than just partnership for its own sake.’

43 Theplanhighlightedtheroleofchildren’strustsincommissioningservicesonthebasisofacomprehensivelocalneedsanalysis.TheLGPIHActimposedastatutorydutyonlocalauthoritiesandPCTstoworktogethertoproduceajointstrategicneedsassessment(JSNA)ofthehealthandsocialcareneedsoftheirpopulation,tohelpimprovelocalpartnershipworking.Children’strustswouldbeinvolvedthroughtheDirectorofChildren’sServicesworkingwiththeDirectorofPublicHealth.

44 TheChildren’sPlanclearlyacknowledgedthatchildren’strustsarenottheonlylocalpartnerships.Inparticular,theyhavecomplicatedrelationshipswithLSPs,whichworktodelivertheSCSsandLAAs.Thisrecognitionaddedadvocacy,representation,andnegotiationtothechildren’strusts’functions:

‘it is of course vital that the children’s trust is firmly positioned within the LSP. The children’s trust is responsible for informing and influencing the work of the LSP as it relates to children, young people and families, and for identifying and championing the children and young people’s interests within the process of agreeing and implementing targets in the Local Area Agreement. It should ensure that the Children and Young People Plan (CYPP) is fully consistent with the strategic vision and SCS and helps drive delivery.’ (Ref. 12)

Futurelegislationandguidanceneedstobeconsistentbetweenchildren’strustsandlocalstrategicpartnerships

45 InApril2008,DCSFpublisheddraftstatutoryguidanceoninter-agencyworkinginchildren’strusts(Ref.13).Itproposedastrengthenedroleforchildren’strusts,supportedbyanewCentreforExcellenceandOutcomesinChildrenandYoungPeople’sServices.Italsorecognisedthecomplexitiesoflocalinter-agencyworking:

‘arrangements have varied from area to area as there can be no fixed national blueprint for the development of local relationships. It is also the case, however, that the quality of relationships between agencies and the extent of involvement of key parties has varied from place to place.’

Changingmessages

1�|Changingmessages|Arewethereyet?

46 DCSFconsultedinJuly2008onpossiblelegislationtoputchildren’strustsonastatutorybasis.Thelegislativeoptionswere:

• extendingthedutytocooperatetootherpartners,suchasschools,academies,FEcollegesandGPs;

• strengtheningCYPPs,byrequiringallpartnerstobeinvolvedandhaveasharedresponsibilityfortheplan,soitceasestobeonlyalocalauthorityplan;

• establishingstatutorychildren’strustsboards,settingtheobjectivesandprescribingthemembership;and

• removingbarrierstoallowgreaterdelegationoffunctions,andanextensionofpooling.

4� AtthesametimeCLGpublishednewstatutoryguidanceonLSPs,followingconsultation(Ref.14).ThisconsolidatesguidanceonestablishingavisionforanareathroughtheSCS,agreeingprioritiesthroughtheLAA,anddeliveringthoseprioritiesthroughtheLSP.

4� However,thereisnowadangerofdifferentapproachescomingfromtwogovernmentdepartments;oneisenablinganddevolutionaryinrespectofLSPs,theotherismoreprescriptiveandcontrollingofchildren’strusts.Moreguidanceonchildren’strustsisalsonowexpected,despitethegovernment’scommitmentto:

‘keep guidance to a minimum - producing consolidated and light touch guidance

- and to work with local authorities, and other key partners including business and the third sector, to support and spread best practice.’ (Ref. 15)

4� Manychildren’strustmembersareconfusedabouttheirrelationshipwithLSPs,withconsequencesdescribedinChapter4.ThereisanopportunityforCLGandDCSFtoworktogethertoproduceguidancethatcommunicatesaconsistentmessageabouttherelationshipsbetweenLSPsandchildren’strusts.

50 TheCommissionconsidersthatfutureguidancecouldfocusonhowtodriveimprovementsinoutcomesforchildrenandyoungpeople,ratherthanprovideorganisationalblueprintsforthewaychildren’strustsshouldbeorganisedorundertaketheirbusiness.Itisimportantthatanyguidanceresolvestheremainingconfusionaboutrolesandresponsibilitiesanddoesnotconflictwiththegovernment’sapproachtoLSPs,sothatthevariouselementsofgovernmentguidanceandanylegislationprovideamorecoherentframeworkforeffectivecollaborationatalocallevelthanhasbeenthecasetodate.Figure2illustrateshowintegrationandconsistencywiththeLSPandchildren’strustcouldoperate.

Changingmessages|Arewethereyet?|1�

Partnership Plan and strategies

ThematicPartnership

LSPStrategic

Executive

Operational

Strategictheme

Children’sTrust Board

Children’s TrustExecutive Group

ThematicPartnership

OperationalGroup

OperationalGroup

OperationalGroup

Localdevelopmentframework

Localareaagreement

ThematicPartnership

Childrenand youngpeople’s plan

Children andyoung people’sLAA targets

Serviceplans

Sustainablecommunitystrategy

Figure2AligningLSPandchildren’strustarrangementsBringingaconsistentandintegratedapproach

Source:AuditCommission

Changingmessages


51 In2005,theAuditCommissionpublishedGoverning Partnerships(Ref.16).Itrecognisedthatlocalbodiesoftenneedtoworktogethertorespondtocomplexandmulti-facetedproblemsthatoneorganisation,workingalone,cannotresolve.Butitalsoexposedtherisksinherentinpartnershipworking.Workingacrossorganisationalboundariescancreatecomplexityandambiguity,bringingconfusionaboutrolesandfunctions.Thepartnersmustagreehowtheywillgoverntheircollaborationatstrategic,executive,andoperationallevels.Theorganisationsinvolved–andthepeopleworkingontheirbehalf–needclarityaboutpurpose,rolesandresponsibilities,andaccountability.

52 Governing Partnershipsstressedtheroleofformalagreementsingovernancearrangements.Butformalagreementsneedsharedobjectivesandvaluestosupportthem.Partnersmustrecogniseeachother’sdifferentorganisationalcultures.Andformalagreementsmustrecognisetherolesofstrategic,executive,andoperationalpartners.Gettingthesestraightisnoteasy:

‘We are supposed to be a strategic board - but we never get time to look at the big picture. The agenda is always filled with detail that should really be dealt with somewhere else.’

Districtcouncilchiefexecutiveanddeputychairofcountychildren’strustboard

3Formshouldfollowfunction

53 EveryChildMattersoutlinesfourkeyfeaturesofchildren’strusts.Twoarestrategicfunctions(inter-agencygovernanceanddevelopinganintegratedstrategy),oneanexecutivefunction(managingintegratedprocesses)andoneanoperationalfunction(integratedfront-lineservicedelivery).Ifformfollowedfunction,children’strustswouldhavemanagementarrangementsthatreflectedthoseinTable2.

54 Relationshipsbetweenthedifferentfunctionsshouldbeexplicit,withconnectionsthataremappedinthearrangementsformanagingresourcesandperformance.Therearethreeparticularrisksthatneedtobemanaged:

• accountabilitiesandreportinglinesshouldbeclear;

• toomuchprocesscandriveouttheflexibilitynecessaryforstrategicthinkingandserviceredesign;and

• somechildren’strustmemberscanbealienatedbyformal,publicsectorprocesses.

Formshouldfollowfunction|Arewethereyet?|21

Table2Localfunctionshouldleadtopartnershipform

Level Function FormStrategic •championchildrenandyoungpeopleinthearea,

•championinterestsofchildrenandyoungpeopleintheLAA;

•ensureconsistencybetweenCYPPandSCS;

•setdirection;

•monitorperformance;

•beresponsibleforoversightoflocalresourcesforchildrenandyoungpeopleinthearea;

•developinter-agencystrategy;

•setdirectionforanalysisoflocalneedsthroughjointstrategicneedsassessment;and

•setdirectionforjointcommissioningstrategy.

Strategicboard

Executive •directandmanageresources;

•directandmanageperformance;

•manageinter-agencydelivery;and

•procureservices(forexamplethroughjointcommissioningunit).

Themesub-groupPerformanceboard

Operational •assessindividualneeds-identifychildrenwhoneedhelp;

•coordinateinformation,performance,andlocalresources;and

•deliverchildrenandfamilyinterventions.

AreateamAreacluster

Formshouldfollowfunction

22|Formshouldfollowfunction|Arewethereyet?


55 Thebiggestchallengetoeffectivejointworkingisthatthedifferentorganisationshaveconflictingpriorities.Thisisclearlyrecognisedbychildren’strustmembers,anddiscussedinChapter4butthereareotherchallengesthatarenotsoclearlyrecognised:

• creatingchildren’strustpartnershipsthatreflectthedifferentneedsofstrategic,executive,andoperationalworking;

• recognisingtheneedfor‘boundaryspanners’–peoplewhosejobincludesworkingacrossorganisationalboundariesattherightlevel;

• ensuringthatpartnershiparrangementsateachleveladdvalueratherthantickboxes;

• linkingthedifferentpartnershipsforchildrenandyoungpeople’sserviceswitheachother,andwiththewiderlocalpartnershipnetwork,withoutcreatingunnecessarylevelsofbureaucracy;and

• recognisingthevalueofpartners’contributionstotheoverallaimsandobjectivesofthepartnership.

56 Theaimofjointworkingshouldbetodeliverbenefitswithoutcreatingunnecessarybureaucracy.

Allareasareestablishingchildren’strustboards

5� Recognisingtheneedtorespondtothedevelopingagenda,localcouncilshaveworkedwiththeirpartners,aimingtocovertheresponsibilitiesenvisagedforchildren’strustsinlegislationandguidance(Figure1).

5� ByMarch2008,almostallareas(96percent)hadcreatedsomeformofpartnershiptopromotecooperationbetweenagencies.Allareasexpectedtohaveoneinplaceduring2008/09.Overtwothirdsarecalled‘children’strustboards’,Iwhiletheremainderuseavarietyofnames,including:‘thechildrenandyoungpeople’sstrategicpartnership’,‘childrenandyoungpeople’sstrategicboard’,‘changeforchildrenboard’and‘allianceboard’.

5� Developingchildren’strustshasbeentime-consuming.Engagingstakeholders,setting-uptheinfrastructureanddevelopinginter-agencygovernancearrangementsalltakeeffort(Ref.6).Localauthoritieshadtorestructuretobringeducationandchildren’ssocialservicestogether,followingtheguidancein2005,withmostofthechangesoccurringin2006/07.ManyPCTswerereorganisedatthesametime.Mostlocalarrangementshadonlyayeartosettledownbeforethe2008deadline–mostareaswithpre-existingarrangementschangedstructures;consultation

I This term is used throughout this report to refer to all similar arrangements.


arrangements;andprocessesforinvolvingchildren,parents,andcarersbetween2006and2008.

Children’strustarrangementsvaryacrossthecountry

60 Thereissubstantialvariationintheformthatchildren’strustboardstake.Differentapproacheshavebeentakenindifferentareas,respondingtolocalcircumstances,butalsoreflectingsomelocalconfusion.Someofthedifferencesatthehighestboardlevelareillustrated

Nameofchildren’strust Established Chairedby Boardmembers

BarnsleyChildrenandYoungPeople’sTrust

2005 LeadmemberforChildren’sServices

13

CambridgeshireChildrenandYoungPeopleStrategicPartnership

2006 DirectorofChildren’sServices

24

MertonChildren’sTrust 2005 DirectorofChildren’sServices

19

LancashireChildrenandYoungPeopleStrategicPartnership

2008 DirectorofChildren’sServices

30

StaffordshireChildren’sTrust 2005 DirectorofChildren’sServices

9

SunderlandChildren’sTrust 2004 LeaderoftheCouncil 20TorbayChildren’sPartnershipTrust 2006 Leadmemberfor

Children’sServices30

WalsallChildrenandYoungPeople’sTrust

2005 Independentchair 14

inTable3,whileotherscanbeseenbycomparingunitarySunderlandwithtwo-tierStaffordshire.

61 Sunderland’sarrangements(Figure3)areanexampleofchildren’sservicesarrangementsthatmirror,andlinkclearlyto,thoseoftheLSP.Thechildren’strusthasaclearstrategicroleandrelationshipwiththeLSP.Thereisaseparateexecutiverole(thechildren’struststrategicpartnership)thatoverseesoperationaldeliveryofchildren’sservicesthrougharangeofchildren’spartnerships.

Table3Casestudychildren’strustsGovernancearrangements,aswellasnames,vary.




62 InStaffordshire,thearrangementsreflecttwo-tierworking,acommitmenttolocallyfocusedactivity,andtheinvolvementofchildrenandyoungpeopleinsettingthedirectionofchildren’sservices(Figure4).Inadditiontocountywidearrangements,thereareeightdistrictchildren’strustboards,50localitybasedgroups,andashadowboardofchildrenandyoungpeople.

Sunderland Children’s Services Partnership Arrangements

Sunderland Strategy(Citywide Strategy Priorities)Local Strategic Partnership

Corporate Improvement Plan(Council Objectives)Executive Management Team

Partners governanceArrangements

Local area agreement citywideareas for improvement, agreedwith GONE

Children's Services DirectoratePlan (Children's ServicesStrategic Priorities)Children's Services Team

Change for children strategyChildren's Trust StrategicPartnership

Children and Young People’sPlan (Citywide StrategyPriorities for children andyoung people) Children’s Trust

Thematic Partnership Children’s Partnership

Children’s Partnership• 14-19 Partnership• BSF Education board• CAMHS• Connexions LMC• Disabled children• Early years and child care• Extended services• Multi-Agency Looked-After Partnership• Sunderland Youth Parliament• Teenage pregnancy board• YOS board• Young people’s substance misuse

Extending culturalopportunities• Safer communities• Econmonic prosperity• Housing• Learning partnership• Inclusive communities• Health and social care• Attractive and

accessible city• Extending cultural opportunities

Figure3SunderlandChildren’sTrustChildren’sservicesareclearlylinkedtotheLSP

Source:SunderlandChildren’sTrust

Themodelisexplicitaboutstrategicoversightanddirection.


Staffordshire Children’s Trust Partnership Arrangements

Staffordshiresafeguarding childrenboard

Staffordshire children’s trust boardCounty thematic partnership forthe children and young people’sblock of Staffordshire’s LAA

Shadow trust board

Eight district children’s trust boards

50 Community and learning partnershipmanagement advisory groups

District children’s trust boardsupporting arrangements

Staffordshire children’s trust executive

Co

mm

unic

atio

n • Planning and communication• Joint commissioning• ISA-CAF implementation• Children and young people’s participation• Workforce development• Integrated service delivery

Ann

ual w

ider

par

tner

ship

co

nfer

ence

63 BothStaffordshireandSunderlandwillkeeptheirarrangementsunderreview.JustunderhalfofDirectorsofChildren’sServicesdescribetheirlocalchildren’strustarrangementsas‘stilldeveloping’.Inearly2008athirdofarrangementsinthecasestudysiteswerebeingreviewedorrevised,aspartnerslinkedchildren’strustarrangementstopre-existingpartnershipsandtheLSP,reflectedrecentlocalgovernmentandPCTchanges,andworkedtomaximisethebenefitfromdifferentpartners’contributions.

Figure4StaffordshireChildren’sTrustFocusingonlocalactivityacrossacounty

Source:StaffordshireChildren’sTrust

‘I do feel and experience it as a journey…it is never going to be at a point where it’s done and sorted, with no more to do, is it?’

Connexionsrepresentative



Evolvingguidancehascausedconfusion

64 Thedifferenttitlesusedlocallymayreflecttherapidevolutionofcentralgovernmentguidanceandthestartingpointsfordifferentareas,aswellasconfusionaboutthepurposeandformofchildren’strustsandtheuseofchangingterminologybetween‘children’strusts’and‘children’strustarrangements’:

‘… a lot of people thought we had to set up this thing called the children’s trust for 2008, and it’s still causing real problems. [The later guidance] seems to say that no, you do not have to set up a body, what you need to do is have integrated governance, planning systems and services and it would have been much better if they said that consistently rather than talk about the children’s trust.’

Localauthoritystrategymanager

‘The government plays around with the word “trust” to such an extent that it becomes a barrier to good communication. Our PCT is seeking foundation status and acquiring a ‘trust’ as they see it. We are at the forefront of encouraging our schools to become “trusts”.“Trust” means one thing when you are in the health sector, something else in the education sector and a third thing when you are in a multi-disciplinary sector. It doesn’t aid communication!’

Directorofchildren’sservices

‘I think the guidance relating to what a children’s trust is, is poor. It doesn’t help in explaining precisely what it is that we’re talking about.’

Children’strustmanager

65 Atleastsomeofthevariationintheformoflocalchildren’strustsreflectsattemptstorespondtothischanginggovernmentguidance,possiblyunderminingtheextenttowhichpartnershiparrangementsaredrivenby,andappropriateto,localcircumstances.Thereferenceinearlyguidancetoachildren’strustasanorganisationalform,andtheuseofboth‘children’strust’and‘children’strustarrangements’inlaterguidance,mayhaveobscured–butdoesnotremove–theneedforlocalareastoorganisethemselvesatstrategic,executiveandoperationallevelstodeliveralltheirdifferentfunctionsasdescribedinTable2.

Formshouldfollowfunction|Arewethereyet?|2�

66 Continuinguncertaintyaboutthepurposeofthenewarrangementsmaybeabarriertotheirsuccessintheeyesofmanyparticipants(Table4).

6� DirectorsofChildren’sServicestendtobecomfortablewithpermissive,enablingguidancethatallowsareastodeveloparrangementsinresponsetolocalcircumstances.Thosewithaclearvisionofhowtheywanttodeveloparrangementslocallyarehappytodrawfromtheguidanceavailable.Thevariationintheresultingarrangementsshouldreflectdifferentapproachesthatareappropriatefordifferentareas.Unfortunately,theyalsoreflectconfusionaboutthegovernment’srequirements.

Partnersarewellrepresented

6� Strategicchildren’strustboards(Figure5)tendtoinvolvemostofthekeypartners,thoughnotallofthosewithadutytocooperate(Table1).Thesemaybeinvolvedatotherlevels(servicespecificpartnerships,localitygroups,orlocalchildrensafeguardingboards),butitissurprisingthatConnexionsandlocalprobationboardsrarelyhaveavoiceatthestrategiclevel.Thismaybebecauseprobationserviceshavemainlyfocusedontheover18population,andthatConnexionsservicesarenowbeingbroughtbackintothelocalauthority.

6� TheChildrenAct2004requireseverycountyorsingletiercouncilinEnglandtodesignatealeadmemberforchildren’sservices.

Partner Typeoforganisation PercentageDirectorofchildren’sservices

Localauthority(dutytocooperate)31

Leadmember 41Districtcouncil 54Primarycaretrust

Relevantpartners(dutytocooperate)46

Police 50VCS

Otherpartners(nodutytocooperate)55

Schools 41

Table4Percentagewhothinkconfusionaboutpurposeofchildren’strustarrangementsisabarriertosuccess

Source:AuditCommissionsurveyofstakeholders


2�|Formshouldfollowfunction|Arewethereyet?

‘The lead member exercises local political accountability for the same range of services as the director, and is expected to take a particular role in safeguarding.’I

�0 Ninety-twopercentofleadmembersaremembersofchildren’strustboards.Localauthorityofficerstypicallydescribeleadmembersassupportive,takinganactiveroleindrivingtheagendaforward.

23

610

1627

4752

6165

8097

1421

508284

9295

100

GPsGovernor

Fire serviceMental health trust

Private SectorParents/Carers

Children and young peopleColleges

Other PartnershipAcute Trust

SchoolsVCS

ProbationConnexions

HousingYOTLSC

Lead membersPolice

PCT

Figure 5Most key partners are represented on children's trust boards (%)

Source: Audit Commission survey of directors of children's services

Otherpartners

Relevantpartners

‘She has taken a particularly active and vigorous role in taking this agenda forward. She goes off, meets with other agencies and groups, parents and children, and understands the benefit of partnership working. The added value of her involvement really leads to the success [of the partnership] because it’s made the other agencies in the children’s trust see just how seriously the council is taking it.’


I http://www.everychildmatters.gov.uk/strategy/dcsandlm/


‘Where you’ve seen the most change is where you’ve got very clear political leadership to unlock resources and to give very clear direction to strategies and senior managers to get on and deliver, and that really kicks on the change’.

Strategicmanager,children’sservices

�1 TheChildrenAct2004extendedvoluntarycooperationtoarangeofagenciesinvolvedincommissioninganddeliveringservicestochildrenandyoungpeople.Mostchildren’strustboardsincluderepresentativesofthevoluntaryandcommunitysectorandschools,thoughbarelyhalfincludefurthereducationcolleges.Theprivatesectorisonlyrepresentedononeinsixboards.TheChildrenActrequiredwiderepresentationonchildren’strusts.Thisincludedtheprivatesectorasnon-statutorypartners,toplayapartincommissioning,aswellasindeliveringservices,forexamplenurseriesandacademies.Mostchildren’strustsneedtoengagewiththeprivatesectormoreeffectively.

�2 Localcouncils,alongwiththeirpartners,haveadutytoconsultchildrenandyoungpeoplewhentheypreparetheirChildrenandYoungPeople’sPlan.ResearchbyNationalFoundationforEducationalResearch(NFER)(Ref.17)showedthat,inthe75planstheyanalysed,allhadconsultedchildrenandyoungpeopleduringthepreparationoftheplan.ArangeofapproachesweretakenincludinglargescalesurveyssuchastheJointAreaReview(JAR)TellUs

survey;largegroupeventsofchildrenandyoungpeopletoseektheirviews;andsmallergroupeventslikeyouthparliaments,oryouthcouncils.

�3 ChildrenandyoungpeoplewereconsultedonarangeofissuesincludingtheirviewsontheEveryChildMattersoutcomes;theissuesthatwereimportanttothem;howmuchtheyagreedwiththeprioritiesfortheirareaintheplan;andabouthowservicescanbedeveloped.

�4 InproducingCYPPs,allareasconductedneedsanalysis,andin67ofthe75plansanalysed,theviewsofchildrenandyoungpeopleweretakenonboardtohelpshapetheplan.

�5 TheNationalYouthAgency(NYA)hasalsosupportedlocalcouncilsandtheirpartnersonhowchildrenandyoungpeoplecanbecomeinvolvedinshapingCYPPs(Ref.18).Theirguidanceoutlinesarangeofapproachestowardsinvolvingthem:

• consultations;

• practiceinitiatives;

•websites;

• largescaleevents;

• advisoryorreferencegroups;

• networkofgroups;

• parallelstructures;and

• committeeplaces.



TheNYAclearlysetsoutthestrengthsandlimitationsofeachapproach.Thisbuildsonthestandardsforinvolvingchildrenandyoungpeople(Ref.19).TheNYAhasproducedon-linetoolstohelplocalcouncilsandtheirpartners,aswellaspracticeexamplesofhowchildren’strustscanimprovetheirworkwithchildrenandyoungpeople.

�6 Children’strustboardsmustalsotakeaccountoftheviewsofchildren,youngpeople,andtheirfamiliesindevelopingthestrategicdirectionofthechildren’strustarrangements(Ref.6).Justunderhalfofchildren’strustboardshavechildrenandyoungpeopleasmembers,whileunderathirdofboards

haveparentorcarerrepresentatives.Thisdoesnotreflectthefullextentofchildrenandyoungpeople’sinvolvement,sincethereareotherwaysofengagingthem.Figure6illustratesStaffordshire’sapproach.

Figure6InvolvingchildrenandyoungpeopleinStaffordshire

StaffordshireChildren’sTrustStaffordshire’sChildren’sCommissioner,IisemployedbytheCountyCouncilbutisresponsibletotheStaffordshireChildren’sTrust,asanadvocateforchildrenandyoungpeople.TheChildren’sCommissionerensurestheviewsofchildrenandyoungpeoplearetakenintoaccountwhenplanningandprovidingservicesforchildren.TheChildren’sCommissioner:• isonthechildren’strustboard;

• facilitatestheChildrenandYoungPeople’sParticipationsub-group;

• hasproducedaframeworkforparticipation;and

• createdashadowtrustboardofchildrenandyoungpeople,whichreportstothechildren’strustboard.

TheChildren’sCommissionerhasamonthlyblog,andhasproducedbookletsaboutStaffordshire’schildrenandyoungpeople’splantogetherwithgroupsofchildren:http://www.staffordshirechildrenstrust.org.uk/About/

I This is an initiative independent of the national Children’s Commissioner.


0 10 20 30 40 50 60 70 80 90 100

Districts (66)

PCT (68)

Police (40)

Schools (46)

VCS (86)

Strongly agree Agree Neither agree or disagree Disagree

Figure 7 Most partners feel they are a valued partner in the children's trust arrangements

Source: Audit Commission survey of local partners

%

0 10 20 30 40 50 60 70 80 90 100

Districts (66)

PCT (68)

Police (40)

Schools (46)

VCS (86)

Strongly agree Agree Neither agree or disagree Disagree

Figure 8 Most partners feel they can influence what the board does


%



Mostchildren’strustsareengagingkeypartners

�� Partnershipsworkbestwhenallpartnersbringtheirknowledgeandskillstogethertowardsacommonobjective.Moststakeholdersfeeltheyareavaluedpartnerinthechildren’strustarrangements(Figure7).

�� Mostmembersofchildren’strusts,includingthepolice,PCTsandschools,feeltheycaninfluenceandmakeimportantcontributionstowhattheboarddoes(Figure8).

�� Althoughpositiveaboutparticipation,thevoluntaryandcommunitysector(VCS)considersitselftobetheleastinfluential.Whilethesector’sinvolvementvariesindifferentareas,threekeythemesarecommon:

• Purposeofengagement–localauthorities,andtheVCS,needtobeclearabouthowthesectorengageswithchildren’strustarrangementsatstrategic,executive,andoperationallevels.

• Waysofworking–mostmembersofchildren’strustboardsarefromlocalauthoritiesandotherstatutoryagencies.ThiscansetanoverlyformaltonethatdetersVCSrepresentativesandstiflescreativestrategicthinking.

‘It’s quite daunting sitting around with people talking strategy and they sound as if they know what they are talking about. Well they do know what they’re talking about, but the language isn’t always easy for groups to understand so…I would say that they [the VCS] don’t rate at the same level; they’re not given the same credence I don’t think within the partnership scenario.’

VCSrepresentative

• Valuingthesector–VCSrepresentativesalsofearthatotherpartnersdonotunderstandtherangeofVCScontributions.

‘The VCS is contributing a great deal but it’s not seen or appreciated. There’s a lot of work taking place with children and young people across all ages in communities, but that’s not really valued. There’s a lack of understanding of the sector. We are part of that, but because we don’t hold resources in our own right, that side of things doesn’t get appreciated.’

VCSrepresentative

�0 Thechildren’strustboardmustmakesurethatallpartnersfeelvaluedandabletoinfluencetheagenda.Thismeansbeingclearabouthowpartnersshouldengageandworktogether,andvaluingthedifferentcontributionseachorganisationcanmaketowhatthechildren’strustistryingtoachieve.Cleargovernancearrangementsmakethiseasiertoachieve,andwillhelpsecuretheengagementoftheprivateandvoluntarysectorwhileavoidingconflictsofinterest.


Governancearrangementsareinplace

�1 Almostallchildren’strustboards(98percent)havetermsofreferencefortheirpurpose,aims,andobjectives.Theremainderwillhaveagreedtermsofreferenceduring2008/09,coveringtherolesandresponsibilitiesofboardmembers,decision-makingprocesses,commissioning,andalignmentofpartners’budgets(Table5).Allthecasestudyareashadawrittenconstitutionoutliningwhatthechildren’strustwastheretodo,sothatpartnerswereclearabouthowthearrangementswouldwork,includingrolesandaccountability.

�2 Lancashire’spartnershipagreementforitsChildrenandYoungPeople’sTrust(Figure9)recognisesthatpartnership(strategy),theframeworkforresourcesandfinance(executive),andintegratedprocessanddelivery(operational),areallnecessaryforjointworking.



Issuescovered %ofchildren’strustsResponsibilitiesofchairandboardmembers 86Decisionmakingprocesses 86Rationaleformembership 85Commissioning 80Alignmentofpartners’budgets 75Keyrelationshipswithotherpartnershipsandsub-groups 71Informationsharing 70Probityanddeclarationofinterest 54

Arrangementsforpoolingbudgets 49

Table5Termsofreference

Source:Telephonesurveyofdirectorsofchildren’sservices


Figure�LancashireChildrenandYoungPeople’sTrust-partnershipagreement

Makinglocalsenseofthedutytocooperate

LancashireChildrenandYoungPeople’sTrustsettleditspartnershipagreementinApril2008.Itcovers:• vision,functionsandprinciplesforthechildren’strust;

• outcomes–usingtheEveryChildMattersoutcomesframework;

• partners’involvementandobligations;

• governancestructuresandrelationships;

• membershipofdifferentstructures;

• frequencyofmeetings;

• conflictresolution;and

• resourcesandfinance.

Allofthisissupportedbyjointstrategicplanningandresearch,andacommunicationsstrategytokeepallstakeholdersinformedofprogress.

Source:LancashireCountyCouncil

�3 Children’strustboardsmeetregularly,mostatleastonceeverytwomonths,withanotherthirdmeetingfourtimesayear.Afew(fivepercent)meetthreetimesayear.Mostrepresentativesattendmostmeetings(Figure10).LocalauthorityandPCTmembersaremostlikelytoattendallmeetings.Thepoliceareleastlikelytodoso,thoughonepoliceservicegenerallycoversatleasttwoormorechildren’strusts.

�4 Localauthoritieshaveastatutorydutytoleadworkonchildren’strusts,and88percentofchildren’strustsboardsarechairedbysomeonefromthecouncil.Tenpercentofchairsarefromoneoftheotherpartners,whilejusttwopercentofboardshaveindependentchairs(Figure11).

�5 Aparadoxofallpartnershipworkingisthat:themoreorganisationsthatsitatthetable,theharderitistohaveeffectivemeetings.Factorsthatcontributetotheproblemforchildren’strustsincludetheambitiousscaleoftheEveryChildMattersagendaandthenumberofpartnerswhoneedtobeinvolved.Thiscanbeexacerbatedbyfailuretoestablishclearrolesforeachlevelofpartnershipworkingoralackofcommonlanguage.

‘It’s the very nature of partnerships. All meetings are very ‘treacly’ and you have to fight your way to ensure challenging agendas, otherwise it can very quickly become a meeting where people talk about things rather than where people do things. How to get a partnership outcome focused can be a challenge and we’ve worked very hard to … get interactive items on the agenda.’


‘It needs some smart executive support to keep up the partnership, to filter stuff out, to say the real issues are these and to present it in a form that is recognisable to all partners.’

Districtrepresentative



0 10 20 30 40 50 60 70 80 90 100

VCS (86)

Schools (46)

Police (40)

PCT (68)

Districts (66)

Lead members (65)

Attend all Attend most Attend some Attend few

Figure 10 Most partners attend most meetings (%)


7

2

3

7

38

44

Other

Independent

PCT

Council chiefexecutive

Director of children'sservices

Lead member

Figure 11Most children's trust boards are chaired by a member of the local authority (%)



Figure12MertonChildren’sPartnershipDevelopmentManager

Thepostwascreatedin2007,andthepostholderstartedinJanuary2008.TheoverallpurposeistoreviseandstrengthentheoperationofMerton’sChildren’sTrust.ThepostwascreatedinresponsetoMerton’sJARin2007.Itwillgivethechildren’strustcapacitytotakeastrongerstrategicroleforchildrenandyoungpeopleinMerton.FundingforthepostcomesfromMertonCouncil’sCommissioningandPartnershipsTeam.Theposthasspecificobjectives:• secretariat–servicingboardandsub-groups;

• refineandrationalisethesub-group‘architecture’,includingtermsofreferenceandaccountability/reportinglines;

• supportthedevelopmentofaperformancemanagementframeworkforthetrust;

• integratefullywiththeworkingoftheMertonStrategicPartnershipanddevelopstrongerlinkswithotherthematicpartnerships;

• broadenmembershipandpartnerengagement,forexample - Housing - SaferMerton - GPs - Headteachers;

• developinformationandcommunicationtools–regularnewsletter;

• market/brandtheChildren’sTrust;and

• respondtonational/regionalagenda,forexampleproposedlegislativechanges.

�6 MertonhasrecentlyappointedaChildren’sPartnershipDevelopmentManager,toimproveboththestrategicandthecoordinationelementsofthepartnership’sactivities.


3�|Formshouldfollowfunction|Arewethereyet?

4Improvingoutcomesinthefuture

�� Thegovernmentsettimescalesforlocalcouncilsandtheirpartnerstoputchildren’strustarrangementsinplace,and,byandlarge,thesehavebeenmetacrossthecountry.Mostpartnersarerepresented,feeltheircontributionsarevalued,andfeeltheycaninfluencewhattheboarddoes.

�� Butalthoughthefoundationsareinplaceandrelationshipsaresettlingdown,havingchildren’strustarrangementsisnotthesameasimprovingoutcomesforchildren.Iftheyaretodoso,theyneedto:

• havecleargovernanceandaccountabilityarrangementswiththeLSP;

• embracejointcommissioning;

• influencemainstreamresources;

• improvepartners’involvement;and

• manageperformance.

GovernanceandaccountabilityarrangementswiththeLSP

�� TheChildrenAct2004andthe2005guidanceestablishedthedirectionforjointworking,butmadeitclearthatgovernancewouldneedtoevolve.Establishingtermsofreferencewouldbeafoundationonwhichtrustandnewwaysofworkingcoulddevelop,withchildren’strustsmovingovertimetomorechallengingareas.Thisishappening:somechildren’strustsarechangingtheirtermsofreference.TheLGPIHActgavelocalauthorities

aclearlocalarealeadershiprole,andmadesingletierandcountycouncilsaccountablebodiesfordevelopinganddeliveringLAAs.ThestatutoryguidancepublishedinJuly2008(Ref.14)setanexpectationthattheywouldworkthroughLSPstoachieveconsensusonlocalprioritiesamonglocalpublicbodies,andwiththevoluntaryandprivatesectors.

�0 PrioritiesforchildrenandyoungpeopleshouldbefullyreflectedintheCYPP,whichshouldbeconsistentwiththeSCSandLAAtargetsforchildrenandyoungpeople.Therequirementsof–andprocessesfor–CYPPs,SCSsandLAAscomefromdifferentperspectivesfromdifferentpartsofgovernment.AlthoughrecentLSPguidancehasremovedsomeoftheinconsistencies,thereisnotyetaconsistentframeworkforlocalpartnershipworking.ItisessentialthatgovernanceandaccountabilityarrangementsareclearandoperatewellbetweentheLSPandchildren’strust.

Improvingoutcomesinthefuture|Arewethereyet?|3�

�1 Lookingforward,children’strustswillneedtoensurethattherearecleararrangementsinplacebetweenthemselvesandLSPsatthreelevels:

• Strategic–thechildren’strustboardneedstobeclearabouthowitrelatestotheLSPboardandthatthereareagreedgovernanceandaccountabilityarrangementsinplace.TheseshouldpromotesynergywiththeLSP;establishstrongleadershiptoexertinfluence;promotetheimportanceofapartnershipculture;andbuildgood,mutualrelationships.

• Executive–theexecutivegroupshouldbeguidedbythedecisionsmadeatboththechildren’strustboardandLSPboard.ItshouldensurethatitmanagesresourcesandactivitiestoachievetherelevantchildrenandyoungpeopletargetsoutlinedintheCYPPandLAA.

• Operational–front-linestaffshouldbeclearhowtheirworkinindividualorganisationscontributestothewiderobjectivesintheSCSandLAA,aswellastheCYPP.Theyneedtounderstandthegovernancestructuresthatareinplaceinthechildren’strustandLSP,andhowtheycancontributebesttoimprovedoutcomesforchildrenandyoungpeople.

�2 Chapter6providesaselfassessmenttoolforchildren’strustboardstochallengethemselvesontheirgovernance,andhowtheymanageresources.

Commissionjointly

�3 Thegovernment’sjointplanningandcommissioningframework(Ref.20)outlinedthestepsofacomprehensiveandintegratedapproachtochildren’sservices.ItintendedtostrengthengovernancearrangementsbetweenlocalpartnersandtacklethechallengesillustratedinFigure13.

Improvingoutcomesinthefuture

40|Improvingoutcomesinthefuture|Arewethereyet?

Look at outcomesfor children andyoung people

Look at particulargroups of childrenand young people

Monitor and reviewservices and process

Develop needsassessment with userand staff views

Plan for workforceand marketdevelopment

Identify resourcesand set priorities

Commission -including use ofpooled resources

Plan pattern ofservices and focuson prevention

Decide how tocommission servicesefficiently

Figure13Processforjointplanningandcommissioning

Source:JointPlanningandCommissioningFrameworkCrownCopyright,2006

Improvingoutcomesinthefuture|Arewethereyet?|41

Joint commissioning strategies

0 10 20 30 40 50 60 70 80 90 100Proportion of authorities (%)

Strategy in place

In development for June 2008

In development for December 2008

In development for December 2009

No joint commissioning strategy in place or being developed

Don't know/no answer

Figure 14 Progress on joint commissioning strategies


�4 Nearlyhalfofareashavejointcommissioningstrategies(Figure14)withafurther40percentplanningtodevelopthemduring2008/09.Walsall’sapproachisillustratedinFigure15.

�5 Havingastrategyisnotthesameasimplementingone,andmostareasareatanearlystage.Jointcommissioningiscomplex,andtakestimetodevelopbetweenthelocalauthorityandpartners(Ref21).



Figure15WalsallJointCommissioningStrategy

Walsallchildren’strustpublisheditsfirstjointcommissioningstrategyinNovember2007.Productioninvolvedthelocalauthority,WestMidlandsPolice,Serco(educationservicessuppliertothecouncil),theChildren’sSafeguardingBoard,theLSP,WalsallVoluntaryAction,thePCT,andtheBlackCountryChildren’sServicesImprovementPartnership(multi-area).

Thestrategyprovidesguidingprinciples,anddifferentiatesthreelevelsofcommissioningwhichitcallsstrategic,operational,andindividual.

AjointcommissioningunithasbeenestablishedwiththemigrationofthecommissioningunitdevelopedaspartoftheChildren’sFundandwilldevelopfurthertosupportintegratedcommissioningpracticeacrossthechildren’strust.ThisisoneofthekeyareasofdevelopmentfortheTrustinWalsalltogetherwiththecoordinationofconsultation/participationofchildren,youngpeople,theirfamiliesandcarersandfurtherdevelopmentsaroundlocalityworking.

Thejointcommissioningfunctionwill:• identifywherejointcommissioningcandeliversignificantlyimprovedresultsforchildren

andyoungpeople,andwherethereisclearsynergybetweenthecommissioningprioritiesofpartnerorganisations;

• develop,championandmaintainthestrategicplanningframework-ensuringallaspectsofthecommissioningcycleareintegratedonbehalfofchildren’struststrategicpartnership;

• monitorcommissioningarrangementsatneighbourhoodlevel;and

• setcommonentitlementsandstandardsforservices,toensureequityofprovision.

Source:WalsallJointCommissioningStrategy,2007

I This report will be published in 2009

�6 Thereislittleexperience–orevaluation–oflocalservicesthathavebeenjointcommissionedeffectively.TheAuditCommissionisstartinganewhealthstudyonjointcommissioningandfinancingwhichwillexploresomeoftheseissuesinmoredepth.I

�� Jointcommissioningofchildren’sserviceshashistoricallybeensmall-scale,andattheexecutiveandoperationallevels.Itusuallypre-dateschildren’strustsarrangementsandmainlyinvolveschildandadolescentmentalhealthservices(CAMHS)anddisabledchildrenteams,thesameactivitiesthattendtohavepooledbudgets.


‘We’re doing bits of joint commissioning and pooling bits of money, but I was doing that 20 years ago. […] I don’t think that [having the partnership has] made one bit of difference.’

PCTrepresentative

�� Mostofthelocalresourcesforchildren’sservicesarecontrolledbythedifferentpartners,notthechildren’strustboards.Jointcommissioninghastobeconstructedfromamixtureofaligning(workinginparallel)andpooling(puttingintoonepot)resources.Theavailabilityofjointfunds–suchastheChildren’sFundI–willsupportjointcommissioning.Buttheyformasmallpartofthelocalchildren’sserviceresource.

‘We’re looking at having a joint post [for commissioning] as we’ve got an opportunity and that’s great but that’s one post - I’ve got 500 staff [...] Its not that people don’t want to do it, it’s just that they’ve got their system and we’ve got ours.’

PCTrepresentative

�� Jointcommissioningwillonlydeliverimprovedoutcomesforchildrenandyoungpeopleifitisfirmlybasedandwellstructured.Ithasto:

• bebasedonaclear,agreedvisionofintendedoutcomesforchildrenandyoungpeopleinanarea;

• containaclearanalysisandunderstandingofneeds,outlinedinthejointstrategicneedsassessment,whichshapescommissioningandprocurement;

• userobustinformationonlocalfinancial,andother,availableresources;

• involvelocalpeople,partners,staffandsuppliersincommissioningservices;

• understandsupplymarkets,seekingtoinfluenceanddevelopthem;

• evaluatedifferentoptions(internal,externalandjointlywithpartners)forprocuringservicesandsupplies;and

• reviewcompetitivenessofservicesandachievevalueformoney,whilemeetingwidersocial,economicandenvironmentalobjectives.

100 Commissioningisachallengingactivityforanyorganisation,andjointcommissioningwillbemoreso.Localauthoritiesalreadyfaceskillsandstaffshortagesinotherareasofcommissioningandprocurement(Ref.22).DCSFhasrecentlylaunchedathreeyearcommissioningsupportprogrammeforchildren’strusts.

101 Atthesametime,children’strustsalsoneedtobemindfulofthemodelofWorldClassCommissioningfortheNHS(Ref.23)whichisbeingrolledouttohealthbodiesthisyear,andwhich

I The Children’s Fund has provided £780 million between 2003-2008 for local projects to tackle disadvantage among children and young people.



I SHAs are neither duty to cooperate or named partners.II See also discussion of intelligent commissioning in Audit Commission (2007) Hearts and Minds.III An explanation of unincorporated associations is in the glossary of terms at the end of this report.

placesastrategiccommissioningrolewithstrategichealthauthorities(SHAs)IThereisariskthatlocalgovernmentandhealthcommissioningforchildren’sserviceswillnotbeinharmony.

102 Children’strustsneedtolaydownclearlyhowtheirdifferentelementsshouldworktogethertoputjointcommissioningstrategiesintopractice:

• Strategic–children’strustboardshouldsetthedirectionforexecutiveandoperationalgroups.Itsfocusshouldbestrategiccommissioning,IIusingjointcommissioningtoredesignandintegrateservices,andshiftresourcestowardspreventionandearlyintervention.Itneedstoachieveconsensusandcommitmenttothejointcommissioningstrategy,andthendrivetheagendaforward,withamechanismtoholdtheexecutivetoaccountforprogress.

• Executive–theexecutivegroupshoulddirectandmanagetheimplementationofthejointcommissioningstrategy.Itshouldagreeonthebestapproachforthearea(forexampleajointcommissioningunit)andlooktomanageperformance.Itshouldalsoreportprogresstothestrategicgroupandhaveregulardialoguewithoperationalgroupstomonitorprogress.


• Operational–operationalgroupsshouldhelpshapethejointcommissioningstrategyandthelocalapproach.Theyshouldmanagelocalperformanceandreportprogressandissuestotheexecutivegroup.

Influence mainstream resources

103 Children’strustboardsareunincorporatedassociations.IIITheirpowerliesintheirabilitytoinfluencememberorganisations’decisionsabouthowtheyusetheirresourcestodeliverimprovedoutcomesforchildren.Theavailableresourcesaremorethanmoney.Theyalsoinclude:

• stafftime;

• sharedfixedassetssuchasbuildings;and

• accesstoservicesandsupplies(Figure16).

Ofthese,stafftimeisperhapstheeasiestresource–andthemostwidelycommitted.Children’strustsshouldalsoshapejointlocalworkforceplanningstrategies,andencouragepartnerstotrainstaffandintegratetheirworkforcearoundbetteroutcomes.

Source: Audit Commission survey of directors of children’s services

0102030405060708090

100

Localauthority(n=97)

PCT(n=97)

YOT(n=42)

Police(n=57)

Schools(n=38)

VCS(n=68)

Privatesector(n=9)

%

Staff Money Buildings Equipment Transport

Figure 16 Partners are most likely to contribute staff time to children's trust arrangements



104 Almostalllocalauthoritiescommitresourcesspecificallytothechildren’strustanditsobjectives(Table6).PCTsandthepolicecontributeresourcesinmorethanhalfoftheareas.Otherstatutoryandnon-statutorypartnersarelesslikelytocommitresources.

105 Commitmentofstaffresourceshappensatalllevelsofchildren’strustarrangements:involvementinchildren’strustmeetings;staffsecondmentstomanageordeliverservices;andco-locationofmulti-agencyteams.ThisisinlinewithEveryChildMatters,whichadvocatedachildren’sworkforcethatcouldoperateacrossorganisationalboundaries.

‘We have just established our first multi-agency team. We brought our human resources together and established a single operational work team. It is extremely efficient, brings a coherent service to a child and their family, and secures better outcomes.’


‘A joint appointment Director of public health helps to align the priorities for children between the local authority and PCT.’

PCTrepresentative

‘The development of our school and community early-intervention teams. All the agencies put their resources in. It would not have happened without our children’s trust.’

PCTrepresentative

Partner %committingresourcestochildren’strustboards

Dutytocooperate?

Localauthority 97 YPCT 81 YPolice 57 YYOT 42 YSchools 38 NVCS 37 NConnexions 14 YPrivatesector 9 NLSC 9 YFireservice 5 NOtherhealthbodies 5 Y

Table6Localauthoritiesandhealthcontributeresourcestomostchildren’strusts

Source:Surveyofdirectorsofchildren’sservices.Note:resourcesincludemoney,stafftime,buildingsandequipment.


106 Torbayhasintroducedlocal‘clusterteams’.Theseaimtoallowprofessionalsworkingtogethertodeliverservicesclosertochildrenandtheirfamilies.(Figure17)

Figure1�ClusterteamsinTorbay

Torbayhasintroducedfourmulti-agencyclusterteams–Brixham,Paignton,TorquayEast,andTorquayWest.Theteamsbringaccesstoawiderangeofservicesforchildrenandyoungpeopleinoneplace.Servicesintheclusterteaminclude:• youthservice;

• familysupport;

• extendedservices(informationonafter-schoolactivities);

• educationwelfareandsupporttoschoolattendance;

• careersadviceandsupportthroughConnexions;

• specialistinformationandadviceonsexualhealth,relationships,drugsandalcohol;

• children’sDomesticViolenceGroup;

• accesstoChildrenandAdolescentMentalHealthServices(CAMHS);and

• accesstopolice,schoolnurses,andvolunteeringservices.

Source:TorbayCouncil


4�|Improvingoutcomesinthefuture|Arewethereyet?

Aligningorpoolingbudgets?

10� Decisionsabouthowtoorganisefinancialandotherresourcesareattheheartofeffectivecross-agencyworking.Themaindecisionsareaboutaligningorpoolingbudgets.Pooledbudgetsarecreatedunderstatutorypowers.IApooledbudgetisasinglefinancialmechanismdesignedtobringresourcestogetherunderasingleaccountabilityandmanagementstructure.Organisationsalignresourceswhentheyagreeontargetsoroutcomestobeachievedandworkinparalleltowardsachievingthem.

10� Alignmentisparticularlyappropriate: • formulti-memberarrangements;

• whenpartnersincludetheprivate,aswellasvoluntaryandcommunity,sectors;

• whenpartnersbringspecificapproachesorsolutionstosupportactiononacommonlyidentifiedissue;and

• forflexibleorinnovativeapproaches.

10� Poolingisparticularlyappropriatefor: • bilateral,ortrilateral,arrangements;

• whenpartnersarestatutoryagencieswithpowerstopoolbudgets;

• whenorganisationalboundariesorspecialismshindertheachievementofoutcomes;and

• establishinglong-termcommitmenttoclearlyspecifiedapproaches.

110 Thegovernmentoriginallyfocusedonpooledbudgetsastheadministrativemechanismforbringingresourcestogether.The2005guidance(Ref.6)arguedstronglythatchildren’strustsshouldpoolbudgetsandotherresourcesaspartoftheprocessofjointcommissioning.The2008guidance(Ref.13)recognisesthedifficultiesofablanketrequirementtopoolresources.Itrefersto‘flexibleuseofresources’.Pooledbudgetsshouldbeused‘whereverpossible’:theguidancesuggeststhemasafoundationforjointcommissioning,andserviceintegration.

111 However,children’strustboardsgenerallyconsiderthataligningresourcesiseasierthanpoolingthem,andhasgreatpotential.Pooledbudgetssupportspecificservicesinjustoverathirdofareas(Table7).TheseservicesincludeCAMHSandservicesfordisabledchildren.Mostofthesearrangementspre-datechildren’strusts.Atthesametime,athirdhavenopooledbudgetsforchildren’sservicesorplanstodevelopthem.

I Powers to pool are in NHS Health Act 1977, extended by the Health Act 1979 (section 28 agreements); Health Act 1999 (section 31 agreements), and Children Act 2004.


112 Thereisawidespreadreluctancetopoolbudgets:partlybecauseofconcernthatitleadstolessflexibilityratherthanmore,andpartlybecauseofconcernsaboutthepracticalitiesofdoingso.

‘Our discretionary spend is under lots of pressure, I can see elected members saying, ‘why would we want to put this into a pooled budget?’ You’re only going to do it if you’re sure about what kind of outcomes you’re going to get and what kinds of benefit to the city.’


‘Pooled budgets are one of the key things that I am concerned about. I don’t like the idea, I’ve seen what goes wrong and I think government has got to think about this now. They talk about it being the mechanism for getting people working together better. Well, sorry, actually it isn’t. It’s an absolute nightmare. Aligned budgets are absolutely fine, the most important thing is that you’re very clear about what needs to be delivered.’

Leadmember

Budget pooling

0 10 20 30 40 50 60 70 80 90 100

Proportion of councils (%)

No budgets are pooled

Plans to pool specific budgets

Budgets for specific services are pooled

All health and local authority children's service budgets pooled

None of these/Don’t know

Table 7Most pooling is for specific services




‘Pooled budgets are a real problem because the auditing requirements are so onerous that most people have said

“let’s not go near them”. We’ve got a huge learning disability pooled budget and because of the requirements around pools, people here have said, “never again”. The legislation is unclear; it just ties you up in knots. The direction does seem to align budgets with agreements, but again, there’s no good practice about that.’

Local authority officer

113 Alignedfunding,ontheotherhand,isacommitmentbypartnerstoworktogethertowardssharedobjectives,andtocommissionservicesjointly.Fundingstreamsremainseparate,butspendingandperformanceisjointlymonitored.

114 Alignedbudgetsremainwithinthehosts’accountingsystems.Electedmembersandseniormanagersseethemastheircontributiontotheagreedaimsofthechildren’strustboard.

Progress in aligning resources

0 10 20 30 40 50 60 70 80 90 100

Proportion of children's trust arrangements (%)

No budgets are currently aligned

Plans for specific services aligned

All budgets of partners aligned

Table 8Aligning is well developed

Plans in place to align budgets in near future

All health and local authority budgets aligned

Don’t know



115 Mostlocalauthoritiesandtheirpartnershavealignedservicesandresources(Table8).Threequartershavealignedbudgetsforspecificservicesandmostoftherestplantoaligntheseinthefuture.AlignedbudgetsareusedforCAMHSandservicesfordisabledchildren,eventhoughthesearealsotheservicesmostlikelytohavepooledbudgets.Theyarealsousedtosupportsubstanceabuseservices,teenagepregnancyreduction,youthoffending,andhealthyschools.

116 Bothpoolingandalignmentrequiretrustingrelationshipsbetweenpartners.Local,focused,andsmallscalepoolingiseasierthanlargescalepooling.Budgetalignmentallowsthepartiesroomtoplaysafeandtodevelopjointworkingtowardscommonobjectives.Thisisarationalapproachtomanagingpartnershiprisks.

‘I think [pooled budgets] will work quite well at local levels. Children’s centres, for example, are keen on that as we were on Sure Start so I can see us engaging pretty well. But the notion that we might do that at a higher level, cross county I think is a long way from where we are at the moment.’


‘The main barrier is the fear of agencies entering into pooled budgets, due to the liabilities that could present to individual organisations. The majority want to play safe and just align budgets.’

Children’sservicesmanager

11� Theremaybeanaturalprogressionasjointworkingdevelops.Partnersstartbyworkingtogetherinnewwaysandholdingdiscussionsabouttheresourceseachcancommand.Theyagreetoaligntheirbudgetingandplanningprocessesinafewareas,andthenexpandtomore.Oncetheyhavereachedthisstagetheyareinastrongerpositiontoassesswhetherthebenefitsofapooledbudgetexceedtherisksandcosts.

11� Veryfewchildren’strustshavethegovernancearrangementsthatwouldenablethemtopoolsignificantpartsoftheirbudgets.Simplycreatingthesegovernancearrangementsisitselfacost,addingadministrativeprocessesthatwouldhavelittlebenefit.Children’struststhinksomeoftheobstaclestopoolingbudgetsare:

• bureaucratic,withset-upandrunningcoststhatexceedrealgains(thisappearstofollowtheexperienceofarrangementsfortheflexibleuseofpooledbudgetsforhealthandsocialcare,undersection31oftheHealthAct);

• therelativesimplicityandeffectivenessofalignmentformanychildren’strustpurposes;

• lackofanyevidenceofrealaddedvaluefrompooling;



• lackofcapacityandexpertiseinchildren’struststomakepoolinghappen;and

• lackofconfidenceamongpartnerstopoolmoney,asopposedtootherresources.

11� Itwouldbeconsistentwiththemoreflexibleapproachthatgovernmentisdeveloping,forcouncilsandtheirpartnerstobegivenadviceonpoolingandalignment–butforneitherapproachtobemandated.

Valueformoney

120 Anearlyexpectation(Ref.6)ofchildren’strustswasthatcollaborationbetweenthelocalpartnerswouldleadtobetteroutcomesforchildrenandyoungpeople.Thiswouldinturnleadtoimprovementslikevalueformoneyforchildren’sservicesinlocalareas.Localauthoritiesarepositiveaboutprogressonthispartoftheagenda;nearlytwothirdsofdirectorsofchildren’sservicesandhalfofleadmemberssaytherehavebeenimprovementsinvalueformoneytodate(Figure18).

121 Mostdirectorsofchildren’sservicesidentifiedamixofbothserviceandprocessimprovements(Table9).

122 Mostotherstakeholders,though,arenotsopositive.OnlyaroundaquarterofPCTandpolicerepresentativesonchildren’strustboardssaytheyhaveseenimprovedvalueformoney,with

fewerthanoneinfiveVCSandschoolrepresentativesnotingimprovement.Byfarthemostcommonviewisthatitistooearlytomakeajudgement.

123 Thisperceivedlackofprogressissymptomaticofotherfailings:

‘There is very little flexibility on decision making on funding streams between the organisations. It’s not been a priority for board arrangements, it is not a children’s trust discussion as yet.’

PCTrepresentative

Improvingvalueformoney PercentageMorecollaborativeworking 71Bettercoordinationofservices

68

Bettertargetingofservices 65Streamliningprocesses 57Greateremphasisonpreventativeservices

49

Sharingbuildingsandaccommodation

30

Jointbackofficeservices 17

Table�Howchildren’strust’sarrangementshaveimprovedvalueformoney



124 Abouthalfofdirectorsofchildren’sservicesareworkingwithchildren’strustboards,toshiftresourcestowardspreventionandearlyintervention.Theyrecognisethattheyfacechallengesinmovingresourcesawayfromtargetedandspecialistserviceswithhighcosts–suchas:lookedafterchildren,childprotectionanddisabledchildren–towardspreventionandearlyinterventionactivity.However,thereareexampleswherepreventionandearlyinterventionworkarestartingtomakeadifference.

‘It would be difficult to claim that we are managing to reduce spending on children and young people at risk. It depends on whether we can shift the focus from tier four services.I If we can’t because we are fire fighting all the time, it will be much harder to make savings.’



Improvement in vfm for children's services?

0 10 20 30 40 50 60 70 80 90 100

Directors (100)

Lead members (65)

Districts (66)

PCT (68)

Police (40)

Schools (46)

VCS (86)

Proportion of respondents (%)

Yes - same cost Yes - reduced cost Too early to tell No Don’t know

Figure 18 Too early to say if children's trusts are improving value for money

I See Figure 1.



‘The development of our school and community cluster teams, which are early intervention teams…we are all signed up to putting resources into these teams…we wouldn’t have got there without the children’s trust.’

PCTrepresentative

‘The development of our localities strategy has clearly improved our prevention and intervention work, especially for the under fives.’


Resourcemanagement

125 Thereisasimilarsplitbetweenlocalauthoritiesandothersintheirperceptionsofresourcemanagement.Threequartersofdirectorsofchildren’sservicesandjustoverhalfofleadmembersbelievechildren’strustshaveimprovedthewayresourcesaremanaged(Figure19).WhilePCTsandthepolicearemorepositiveaboutresourcemanagementthanvalueformoney,mostotherstakeholdersbelieveitistooearlytotellifchildren’strustsarereallymakingadifference.


0 20 40 60 80 100

Directors (100)

Lead members (65)

Districts (66)

PCT (68)

Police (40)

Schools (46)

VCS (86)

Proportion of respondents (%)

Don’t knowToo early to tell

Figure 19 It is too early to tell if children's trusts have improved the way resources for children's services are managed

Yes


126 Stakeholdersagreethat,wherethereareimprovementsinfinancialmanagement,theyrelatetobetterpartnershipworkingandtospecificserviceimprovements(Table10).

12� Children’strustshavealsohelpedtodriveanincreaseinthenumberoflocalitybasedmulti-agencyteamsattheoperationallevel.Thesebringfront-linestafftogether,supportculturalchangeinchildren’sservicesandprovideone-stopaccesstoawiderrangeofservicesforchildren,youngpeople,andtheirfamilies.

‘The establishment of local service delivery teams is making better use of professionals involved with children and young people; we are aiming to avoid duplication of staffing and provision.’

Leadmemberonchildren’sservices

‘We’ve developed 13 children’s centres with an agreed planning process that we’ve commissioned services. Staff from a range of agencies are based in these centres and work as a team.’


12� Children’strustsneedclarityonhowbesttheycaninfluencethecollectiveresources:

• Strategic–theboardneedstosetthedirectionandbringgreatercollectiveinfluencetothewaypartnershipresourcesareused.Theyshouldagreeanapproachforimprovingthewayresourcesareused.Theymustbepreparedtotakemorerisksinsharingresources.

Betterpartnershipworking Improvements in specific servicesCYPPisusedtodriveimprovementsinoutcomes

CAMHS

Multi-agencyteamsbasedinlocalitiesorclusters DisabledchildrenAligninglocalauthorityandPCTplansandresources

Sexualhealthandteenagepregnancy

Jointcommissioning-butatanearlystage SubstanceabuseJointposts-onthechildren’strusts,andinspecificservices

Safeguarding

Table10Children’s trusts influence how resources are usedStakeholdersidentifiedimprovementsinprocessesandservices




• Executive–theexecutivegroupcouldassesstheoptionsforusingtheavailableresources.Theyneedtosharefinancialinformationwitheachother,andlookatawiderangeofoptionsforapplyingavailableresourcestolocalcircumstancesincludingaligning,pooling,co-locationofstaffandsecondments.Theyshouldalsounderstandthewayindividualorganisations’financialandserviceplanningsystemsoperate,andseektobringthemmorecloselyintoline.Thisway,executivegroupscanmakemoreeffectivecollectiveuseofresourcesbetweenpartners.

• Operational–frontlinestaffshouldhelpshapethewayservicesaredelivered,andseekwaystomaximiseresourcesinlocalities,forexamplethroughclusterteamsinlocalareas,ormulti-agencyteams.

Improvethewaypartnersareinvolved

12� Children’strustarrangementsareintendedtoencouragecoordinatedworkingbetweenorganisationswithverydifferentconstitutions,fundingandpurposes.Thisreporthasshownthat,whilesomeprogresshasbeenmade,establishingeffectivearrangementsisstillaworkinprogressinmostplaces.

130 Keystakeholdersbroadlyagreeonthemainchallengestojointworking(Table11).

Conflicting priorities

Changesinpartneragencies

Lackofotherpartners‘sign-up’

PercentagecitingthisbarrierDirectorsofchildren’sservices 53 41 9Leadmembers 51 28 17Districtcouncilrepresentatives 64 48 21PCTrepresentatives 50 34 10Policerepresentative 70 52 17VCSrepresentatives 65 28 23Schoolsrepresentatives 54 35 24

Table11Threemainchallengestojointworking

Source:AuditCommissionsurveyofchildren’strustboardmembers


131 Themajorconcernisaboutpartners’conflictingpriorities.Thisisnotanewphenomenon,norisitrestrictedtochildren’sservices(Ref.24).Themostfrequentlycitedconflictwasbetweentheuseof‘sanctiondetections’asameasureofpoliceeffectivenessandtargetsfortheYouthOffendingService(YOS).

‘In relation to the youth justice work we have been driven in arresting children and youths and bringing them through the process so that we can get a sanctioned outcome. That has the opposite effect for the YOS target which is about trying to keep people out of the criminal justice system.’

Policerepresentative

132 ThenewperformanceframeworkbroughtinbytheLGPIHActshouldreducetheseconflicts,butonlyifcentralgovernmentdepartmentsabidebytheprinciplesonwhichitisbased.Thismeansensuringagreatermeasureofcoherenceinfuturepolicymakingandaimingtoreducetheanomaliesthatstillremain.

Engagekeypartnersmorefully

133 Localagreementonsharedobjectivesisessentialforovercomingthesebarriers.Thegovernment’sexpectationisthatthearrangementswillleadtoevercloserworkingbetweenagenciesfromthepublic,privateandvoluntarysectors.Ifthisistooccur,allthedifferentlocalstakeholdersneedtobe

involvedinawaythatisappropriatefortheirskillsandtheirresources.Thereismuchtobedonetoengagethemallappropriatelyandtomaintainthatengagement,especiallywheretherearechangesinthepartneragencies.Thisisrecognisedbyathirdofdirectorsofchildren’sservices,whoareworkingtoovercometheproblemofmissingpartners–particularlyschoolsandtheVCS.

Schools

134 Whileschoolsanswertothegovernment,aswellastoparentsandthecommunityforstandardattainmenttests(SATs)andexaminationresults,theywillnotnecessarilyseecooperationforchildren’swell-beingasapriorityinthewidersense.Schoolsdonothaveadutytocooperateandmanydirectorsofchildren’sservicesareconcernedthisencouragesthemtotakeaninward-lookingapproach.Difficultieswithschoolsandacademieswereattributedtotheextenttowhichtheyfocusinternallyontheirimmediateintakeofpupils,ratherthanexternally(onthechildrenandyoungpeopleinanareaasawhole).Thelackofstatutoryback-up–ifheadteacherschoosenottoengageinthewideragenda–isacommonconcern.


5�|Improvingoutcomesinthefuture|Arewethereyet?

‘There are fundamental policy flaws for me that we’ve got to start sorting out….I have no problem with autonomy, I do have a problem with independence and those two get confused. I want my schools to be autonomous, I do not want them to be independent because I want them to have responsibility and look to their communities and be receptive and outreach… I think [the government has] got to bite the bullet and say “duty to cooperate”.’


135 Manychildren’strustboardstrytoencourageschoolinvolvementinlocaloperationalpartnerships,andpushforthemtonominatechildrenwhocouldbeinvolvedinstrategicandscrutinyroles.Figure20illustrateswhatLancashireisdoing.

Voluntaryandcommunitysector

136 VCSrepresentativesarenotonlytheleastlikelytofeelthattheyaremakinganeffectivecontributiontothechildren’strust,theyarealsothegroupmostlikelytosaythattheyhavedifficultiespersuadingsectorcolleaguesoftherelevanceofthechildren’strustboard’swork:

‘There have been problems, but I don’t think that we are unique… most groups have got their heads down doing what they were set up to do and… most of them are in survival mode as opposed to looking at how you contribute to an overarching plan really.’

VCSrepresentative

Figure20Lancashirechildren’strust:innovationinrepresentation

InLancashire,fifteenschoolcouncilsareassociatemembersoftheboard.Theschoolsincludetwelveprimaryphaseandthreespecialschools.Eachschoolislinkedwithtwomembersoftheboard,whobecometheirpersonal‘partners’forthefullschoolyear.Themembersvisit‘their’schoolonaregularbasisthroughouttheyeartomeetwiththechildrenanddiscussissuesaroundanagendawhichhasbeensetjointlybytheboardandthechildren.Thisyearthetopicareawas‘keepingsafe’.

Boardmembersandthechildrenreportbackondiscussionsfromthemeetingsandthefeedbackissharedwiththefullboard.Itisalsopassedonasappropriatetoothersforfurtheraction.Thechildrenhavecometogethertomakepresentationstothefullboardabouttheirviewsonkeepingsafeandwhatitmeansforthemintheirownlocalities.Theheadteachersoftheschoolssupportandfacilitatethechildren’sinvolvement.

Everyoneinvolvedagreesthatthisarrangementhasensuredmoreeffectiverepresentationandcommunicationthanhavingoneortwoschools’representativesattendingboardmeetings.


13� Inparttheseproblemsarisefromlackofclarityabouttheroleofchildren’strustarrangementsandtherelationshipsbetweenstrategic,executive,andoperationalactivity.

‘Sometimes there is so much information that comes out; it is difficult to plough through. The result is that they do not engage, but then later are critical that they have not been kept informed and kept up to date with things. Particularly for small organisations – how relevant is it for me? What difference is it going to make for me and the day-to-day work of the organisation?’


13� TheguidanceonengagingVCSorganisationsinchildren’strusts(Ref.25)saysthat:

‘Local authorities will want to contribute to building the capacity of voluntary and community organisations in the locality as part of the children’s trust strategy for shaping and developing the market for children and young people’s services.’

13� InvolvementoftheVCScanbeimprovedby:

• recruitingVCSrepresentativesfromlocalcouncilsforvoluntaryservices(CVS)orsimilarbody.NearlytwothirdsofcurrentVCSrepresentativesonchildren’strustboardsarefromCVS.Recruitmentthroughthisrouteismorelikelytosendamessagethatboardmembershipisstrategic;

• ensuringthatVCSrepresentativeshavethemechanismsandsupporttheyneedtoreportondecisions,progress,andinformationtotheirconstituencies;and

• recognisingthatVCSrepresentativescanbemoreeffectiveindirection-settingatthestrategiclevel,orindeliveringservicesattheoperationallevel,ratherthanatthemoreexecutivelevelwherepublicsectororganisationslead.

‘I would see my role as a conduit between the board and voluntary sector and vice-versa. I would see it to advocate, if I felt that there were issues to be addressed… and educate I suppose. I think there are a lot of opportunities where the voluntary sector has access to expertise and resources that aren’t available to statutory and public bodies, where we ought to be making those links and making the best use, so that the bits of the jigsaw fit together to make the whole picture. I guess also because we have that knowledge base of what’s going on out there in the sector, to just keep making that nudge

“have you thought about doing it with that group, have you thought that could happen?’

VCSrepresentative

• PayingforVCSrepresentatives’attendanceatboardmeetingsandsupportingcapacity-buildingactivity,accordingtogovernmentguidance(Ref.25).



‘…smaller organisations are disadvantaged from becoming reps, perhaps because they haven’t got the resources to financially support those kinds of things. There is also a question as to whether you should be using your organisational resources for a representational kind of role.’

VCSrepresentative

Districtcouncils

140 Districtcouncilshavealargeparttoplayinimprovingoutcomesforfamilies,childrenandyoungpeople.Theyprovideleisureservices,housingandplanningservices.Districtcouncilsarealsooftenclosertolocalcommunitiesthancountycouncils.Alldirectorsintwo-tierauthoritiessaidthatrepresentativesfromdistrictcouncilsareinvolvedincounty-widechildren’strustboards.Themajorityofdistrictcouncillorsonchildren’strustboardsonlyrepresenttheirownauthorities(61percent),whereas23percentofcouncillorsrepresentalldistrictsinacounty.Afurther16percenthavesomeotherarrangementinplace–forexampletheyrepresentadepartmentwithinadistrictcouncil,suchashousingorleisureservices.

141 Thelevelofdistrictengagementvariesmarkedlywithinandbetweenlocalauthorityareas.Problemscanbecausedbyconfusionabouttheirroleandfunction,existingtensionsbetweenthecountyanddistrictcouncils,andpartypoliticaldifferences.Bothcountyanddistrictrepresentativesofferthese

asexplanationsfordifficultyingettingfulldistrictengagementintheEveryChildMattersagendaingeneral–andchildren’strustsinparticular.Inmanytwo-tierareas,countyanddistrictcouncilsneedtoimprovethewaytheyworktogether,andchildren’strustsarenoexception.Children’strustboardsneedtoimprovetheimportantcontributionthatdistrictscanmaketoeffectivejointworking,whichwillinturnimproveoutcomesforchildrenandyoungpeople.

Improvingpartnershipunderstandinganddelivery

142 Awarenessoftheworkofthechildren’strustboardwithinpartneragenciestendstobelow.Thisneedstobeimprovediftheyaretoinfluencemainstreamactivityacrossanarea.

‘In terms of awareness, I think you could draw a set of circles. Start with the children’s trust board, then the strategic partnership and then those who come to conferences and whatever, and you’ll get an ever decreasing level of knowledge going out. I think the people that are in those circles have a reasonably good and strong knowledge, I think the challenges we’ve had have been around some of the people in some of the key partner agencies, where they haven’t themselves been hugely involved.’

Strategic officer, children’s services


143 Communicationsbetweenthechildren’strustboardandpartneragenciesrelyonexistingchannels.Theextenttowhichtheyoperateeffectivelyaffectsthedepthandsuccessofrelationshipsbetweenchildren’strustboardsandstakeholderorganisations.Confusionabouttheinvolvementofpartnersatstrategic,executive,oroperationallevelscanmakeitdifficulttomaintaingood,two-waycommunications,andthereforetogetappropriateaction.

‘… you’ve got senior people going back into their organisations and they’re not able or it’s too difficult for them to cascade that information. I can only speak from personal experience, being involved with a children’s trust board, coming back from that and having to get my managers up to speed with what’s been discussed and then get them to implement decisions. For some colleagues around the table that’s a huge task, health not least…’

Connexionsrepresentative

144 Successfulpartnershipworkingrequiresthememberstodemonstratetheircommitmentthroughdeeds,aswellaswords.Wherethisislacking,itisasymptomofalackoforganisationalcommitmenttocollaborativeworking,leadingtotheperceptionthatsomeorganisationsarenotmakinganappropriatecontribution.Whilechildren’strustboardmeetingsarewellattended,somepartnersfeeltheirroleistoparticipateinthemeetingsratherthantakethingsforwardafterwards.

‘I think it has been very difficult to get a partnership that does actually see itself as accountable, collectively accountable. I think… they still see the local authority as the one who is carrying the can, the one who has got the money, the one who’s having to make it all happen, and I think that burden is disproportionate. I personally feel the weight of it massively, really.’

Directorofchildrenservices

145 Therearealsoconcernsthatprogressreliestoomuchonthepersonalcommitmentoftheindividualsaroundthetable.

‘If I don’t like what you are saying, I just won’t come to the meetings… or I can go to every meeting and say the words, but when it comes to me doing it, there has got to be something that formally makes me.’

PCTrepresentative

‘In some areas where they have gone the full hog if you like… and they say ‘this has been great’, it’s been down to a few keen individuals that have made it happen. Where it hasn’t gone quite so far, that’s for the same reason.’

VCSrepresentative



146 Thenewperformanceframeworkislikelytoleadtogreateragreementaboutlocalpriorities,throughtheLAAandSCS,andprovideamechanismforensuringeitherthatprogressisachievedorthatremedialactionistaken,throughthegovernmentofficesandCAA.

14� However,children’strustsneedtocontinuetoimprovethewaypartnersareinvolvedsothattheyparticipatewillinglyandaddasmuchvalueastheycan.Thiswillonlyhappenifdifferentpartnersunderstandhowtheyfitintothethreelevels:

• Strategic-partnersareclearontheirrole,thattheircontributionisvalued,thattheycanhaveinfluence,andthattheycanrepresenttheirownorganisationorsector(forexampleVCS,schools).Collectively,theyholdthevisionandsetdirectionforexecutiveandoperationalgroups,andreviewinter-agencygovernancearrangementsperiodically.

• Executive-partnersareheldtoaccounttodeliverwhattheyhaveagreed.Theymanageinter-agencygovernancearrangements,andtackleissuesthatarise.

• Operational–theycoordinatelocalpartnershipworkinganddeliveryoflocalservices(forexampleareateamsorclusterteams),reportingonperformanceandissuesthatarisetotheexecutivegroup.

Managingperformance

14� Nearlyallchildren’strustboardsmonitorandreviewtargetsintheirCYPP,and83percentofchildren’strustsreportprogresstotheirLSP.Mostchildren’strustboardsreceiveperformancereportsatregulartimesduringtheyear.Performancemonitoringwasalsoundertakenbyspecificsub-groups–suchasthosecoveringthefiveEveryChildMattersoutcomes–orseparateperformancemanagementsub-groups.

14� Theworkofchildren’strustsisreviewedbyanumberofscrutinybodies:

• over60percentbythechildrenandyoungpeoplescrutinycommittee;

• fiftypercentbythelocalauthorityscrutinycommittee;

• thirty-sixpercentbythehealthandoverviewscrutinycommittee;and

• ninepercentbythepoliceauthorityperformanceandscrutinycommittee.

150 Lookingforward,children’strustswillneedtomonitorandmanagetheirperformanceagainst:

• thelongtermstrategyforanareaintheSCS,andtheCYPP;

• thenewlocalperformanceframework,includingthe68indicatorsinthenationalindicatorset(NIS)thatrelatetochildrenandyoungpeople;


• theLAA,insofarasitrelatestotargetsforimprovementforchildrenandyoungpeople;

• the16educationandearlyyearstargetsthatareadditionaltothoseintheLAA;and

• otherprioritiesidentifiedinthejointstrategicneedsassessment.

151 Mostchildren’strustswillthereforeneedtoimprovethewaytheymonitorandmanageperformance:

• Strategic–monitorperformanceagainstboththelong-termvisionintheSCSandCYPP,aswellastheshortertermtargetsintheNISandLAA.Thereneedstoamechanismtoholdpartnerstoaccountifperformanceisnotbeingmet.

• Executive–activelydirectandmanagetheperformanceoftheindicatorsinNISandtargetsintheLAA,andchallengepartners’performance.Itshouldensurethattherearegoodperformancemanagementsystemsinplaceinallpartners,withopenandtransparentreportingbetweenthem.

• Operational–coordinateperformanceinformationbetweenpartners,ensuretherearegooddatacollectionandqualitysystemsandmakesureinformationisshared.



5Conclusions

152 Children’strustarrangementsshouldimproveoutcomesforchildrenandyoungpeopleinaccordancewiththeaimsofEveryChildMatters.Manychildren’strustsareimprovingrelationshipsandjointworkingbetweenpartners,butprogressislessthanwasanticipatedatthestartofthisstudy.Children’strustarrangementsshouldbehalfwaythroughatenyearchangeprogramme:theystillfacesignificantchallengesforthefuture.

153 Asyetthereislittleevidencethatchildren’strustboardsaremakingasubstantialdifferencetooutcomes.TheConfidentialEnquiryintoMaternalandChildHealth(Ref.26)notedthatfailuretocommunicateandcoordinateeffectivelyisstillanimportantfactorinavoidablechilddeaths–exactlytheissuesthatchildren’strustswereintendedtoresolve.

154 Theslowprogressisforanumberofreasons:

• mostchildren’strustsarerelativelynew.Ittakestimeforanynewarrangementstosettlein,especiallywhentheyareascomplexasthoseforchildren’strusts.Culturalchangetakestimetotakeeffect;

• mostchildren’strustshavefocusedatthestrategicleveltodate;ittakestimeforagreedchangestofilterthroughtotheoperationallevel.Anyimprovementattheoperationalleveltakestimetoaffectthelivesofchildren;

• progresswithjointcommissioninghasyettogetfarbeyonddevelopingastrategy;

• jointresourcemanagement,achievingvalueformoneyandperformancemonitoringarrangementsarenotwelldeveloped;and

• manychildren’strustsarestilldevelopingeffectiverelationshipswiththeirLSP.

155 Thisbegsthequestionofhowhelpfulthecentrally-directedapproachtomanagementarrangementshasbeen.Thestructuralchangeoriginallyproposedwasnotbasedonevidencethatitwaseithernecessaryoreffective.Anditisnotobvioushowthelessonsfromthepathfindershasfedthroughintogovernmentpolicy.Thereisatensioninmandatingpartnershipworking;thegreatestbenefitcomesfromcommonownershipofproblems,ratherthanmerelyrespondingtoexternaldirection.

156 LocalpartnersaresupportiveoftheEveryChildMattersagendaandmostfeelabletoinfluencelocaldelivery.Muchofthelocalvariationinmanagementarrangementsmaybeappropriatefordifferentlocalcircumstances.Itislikelythesearrangementswillcontinuetoevolveasdifferentpartiesdiscoverhowtheycanworkbesttogether.Thisreport,andtheaccompanyingtools,shouldhelpthemdoso.

Conclusions|Arewethereyet?|65

15� Whileitistooearlytosaywhetherchildren’strustshavemademuchofadifferencetothelivesofchildrenandyoungpeople,itisalsotooearlytosaythatthecurrentarrangementsneedtobechanged.Allchangeisdisruptive,andchildren’strustarrangementsarestillbeddingdownafterreorganisationsinbothlocalgovernment(theseparationofadultandchildren’scareservices)andtheNHS(PCTs).Children’strustsneedtomaturealongthelinesrecommendedinthisreportiftheyaretosucceedandbringbenefitswithoutbureaucracy.Anyfuturecentralgovernmentguidanceshouldthereforebeenablingratherthanprescriptive,andconsistentwithguidanceissuedonotherformsofmandatedpartnershipworking.Otherwisethereisthedangerthatfurtherlocalconfusionwilldistractattentionfromthecommonpurpose:improvingoutcomesforchildrenandyoungpeople.

Conclusions

66|Conclusions|Arewethereyet?

15� Children’strustsareunincorporatedassociationsIofthekeyagenciesinvolvedindeliveringpublicservicestochildrenandyoungpeopleintheirarea.Children’strustsdonotownassets,oremploystaff.Theyarenotlegallyaccountablebodiesforspendingpublicmoney,orforachievingpublicobjectives.Buttheydoadviseandinfluencelocalaction.Decisionsmade,orprinciplesagreed,bychildren’strustscaninfluencethedeploymentofstaffandotherresources,includingtheuseofassets.

15� Children’strustsneedtoconsiderthegovernancearrangementsthatwillensurethebestuseismadeofpublicresourcesforthebenefitofchildrenandyoungpeople.ThefollowingquestionsareshapedbyournationalstudyGoverningPartnershipsandtheprinciplessetoutintheGoodGovernanceStandardforPublicServices(Ref.27).

160 Wehaveadaptedtheseprinciplesforchildren’strusts,recognisingtheirunincorporatedstatus.

161 Thisisaself-helpquestionnaire:

Howfardoesthechildren’strustfocusonimprovingoutcomesforlocalchildrenandyoungpeople?

• Howclearistheboardaboutwhatithastoachieveforlocalchildrenandyoungpeople?

• Whatdoestheboardknowaboutwhetheroutcomesforlocalchildrenandyoungpeopleareimproving?

• Howdolocaltargetstakeaccountoftheneedsandaspirationsoflocalcommunities,aswellasequalities,disabilitiesandhumanrightslegislation?

• HowwilltheChildren’sandYoungPeoples’Planenableareductioninthegapsinoutcomesbetweenthemostvulnerable–andthemajority–ofchildren?

• Howdoesthechildren’strustboardensurethatdesiredoutcomesforlocalchildrenandyoungpeopleareclearlydefinedandconsistentwithotherlocalstrategies?

• Howdopartnersusesharedperformancemanagementframeworkstooversee,anddeliver,betteroutcomesforlocalchildrenandyoungpeople?

I An explanation of unincorporated associations is in the glossary of terms at the end of this report.

Selfassessmenttoolforchildren’strustsboards|Arewethereyet?|6�

6Self-assessmenttoolforchildren’strustboards

Howdoestheboardoverseetheeffectiveuseofresources?

• Howfarhastheboardmappedthepublicmoney(andotherresources)spentonchildren’sandyoungpeople’sservicesinthearea?Howhasitusedthismappingtosupportdeliveryofimprovedoutcomes?

• Howoftendoestheboardreviewthetotallocalspendingonchildrenandyoungpeople,toidentifyopportunitiesforimprovingvalueformoneyforexamplethroughaligningorpooling?Whatimprovementsinlocalservicesforchildrenandyoungpeoplehavearisenfromaligningorpooling?

• Dopartnersreportontheallocationandimpactofallbudgetsandresourcesspentonchildren’sandyoungpeople’sservicesinthearea?

• Arethesebudgetsreviewedtoidentifyopportunitiesforimprovingvalueformoneyforexamplethroughaligningorpooling?

• Doestheboardhaveapolicyonthealignmentorpoolingofbudgets?

- Howsustainableisthepolicy?

- Howdoesitmonitortheeffectivenessofaligningandpoolingatexecutiveandoperationallevels?

- Howarelessonsfromexperienceofalignmentandpoolingbuiltintofutureplans?

• Howdoestheboardinfluencetheallocationofresourcesto:

- Reducethegapsinoutcomesbetweenthemostvulnerable,andthemajorityofchildrenandyoungpeople?

- Achievelocalpriorityobjectives?

- Havemostimpactonachievinglocalpriorityobjectives?

• Doestheboardmakethemosteffectiveuseofitsinfluenceoverpartners?

- Howdoesitensurethatallpartnerscommitappropriateresourcestoachievingitsobjectives?

- Howdoesitinfluence‘reluctantpartners’?

- Howdoesitmonitortheimpactofstafftimecontributions?

• Doestheboardhaveajointcommissioningstrategy?

- Howwelldoesitreflecttheboard’s,andpartners,objectivesforchildren’sservicesandtheiroutcomes?

- Howwillitaddvaluetolocalservicesforchildren,youngpeople,andtheirfamilies?

- Howclearlydoesitdifferentiatebetweencommissioningandprocurementofservicesatthestrategic,executive,andoperationallevels?

- Howwilltheboardanditspartnersensurethecommissioningstrategyissupportedbystaffwiththerightknowledgeandqualifications?

6�|Selfassessmenttoolforchildren’strustsboards|Arewethereyet?

Self-assessmenttoolforchildren’strustboards

• Howhastheboardsupportedthedevelopmentofajointcommissioningstrategyforchildren’sandyoungpeople’sservices?Whatdoesitdotoensurethatcurrentservicesarereviewedandrecommissionedtoachievebetteruseofresourcesandimproveoutcomes?

• Howfardoestheboardstimulatejointworkingbetweenpartnerstoallowvalueformoney,betteraccess,andimprovedservicequality:

- Arethereeffectiveprocurementprocessesattheexecutiveleveltoenablevalueformoneyacrossthepartners?Forexample,areopportunitiesforjointprocurementexplored?

- Isthereeffectivesharingofsupportfunctions-suchasICT,communications,transport,trainingandHR–toachievebettervalueformoney?

- Dopartnersseektoshareandmaximisejointuseofpremiseswherethiswillsupportbetteraccesstoandqualityofservices?

• Doestheboardsettargetsfor,andmonitorimprovementsin,valueformoney?

- Howdoestheboardsetachievable,stretchingtargetsforexecutiveandoperationalaction?

- Howdoperformancereportssupporttheboard’sstrategicremit?

- Towhatextentarecostsappropriatetoservicedelivery,performance,andoutcomesachieved?

Whataretherolesofthechildren’strustpartnersindeliveringimprovement?

• Whatmechanismsdoestheboardusetoallocateandassessresponsibilitiesforachievingthedesiredoutcomes?

• Howdotheboardandthepartnersensurethatroles,functions,andresponsibilitiesforachievingoutcomesareclearlydefinedandagreed,andunderstoodbytheboard,partners’staff,andwiderstakeholders?

Selfassessmenttoolforchildren’strustsboards|Arewethereyet?|6�

Howdoestheboardeffectivelyconsult,engagewith,andinvolvekeystakeholders?

• Howdoestheboardmakesureitidentifiesthekeystakeholdersindeliveringimprovedoutcomesforlocalchildrenandyoungpeople?

• Howdoestheboardensurethattheviewsoflocalcommunitiesandvoluntaryorganisationsarerepresentedeffectivelyattheboard?Howdoesitensurethatdiversegroupsandinterestshaveavoice?

• Whataretheboard’sstrategiesforconsulting,engagingwith,andinvolvinglocalchildrenandyoungpeopleandtheirparents/carersindirectionsetting,decision-makingandchallengeofthechildren’strust?Howdoestheboardevaluatetheeffectivenessofthesestrategies?

• Howdoestheboarddemonstrateitsaccountabilitytothepartners,localchildrenandyoungpeopleinthechildren’strust?

Howdoestheboardsupportlocalcapacitybuildingandcapabilitydevelopment?

• Howdoestheboardensurethatpartnersdeveloptheappropriateskillsandknowledgefor:

- Peoplewithgovernanceandleadershipresponsibilitiesforlocalchildren’sandyoungpeople’sservices;and

- Staffdeliveringlocalchildren’sandyoungpeople’sservices?

• Howhastheboardcontributedtothedevelopmentoflocalchildren’sworkforcestrategies?Howhasitworkedwithpartnerstoequipstaffwiththerelevantskillstodelivergoodservicestochildrenandyoungpeople,aswellastheirfamiliesandcarers?

• Howeffectivelydoestheboardimproveitsmembers’individualandcollectiveperformance,knowledge,andskills?Howeffectivelydoesitreviewitsownperformanceandthatofitsmembers?

• Howdoestheboardrespondtounsatisfactoryorinappropriateperformancebymembers’organisations?Forexample,aretherefairandtransparentprocesses?

Howaregoodgovernanceandtheprinciplesofpubliclifedemonstratedbytheboard?

• Whataretheprinciplesfortheconductofboardbusiness?

- Howfardotheyreflecttheprinciplesofpubliclife,includingselflessness,integrity,objectivity,accountability,openness,honestyandleadership?

- Howaretheyappliedtoexecutiveandoperationalsub-groupsofthechildren’strustboard?

�0|Selfassessmenttoolforchildren’strustsboards|Arewethereyet?

Self-assessmenttoolforchildren’strustboards

• Howdoesthetrustboardensurethatsub-groupstakeabalancedapproachtogoodgovernance(particularlywheretheyareresponsibleforpooledbudgets)?

• Howdoestheboardensurethatbestpracticeinpartners’policiesfordealingwithboardmembersconflictsofinterestarefollowedinrelationtochildren’strustarrangements?

• Howdoestheboardensurethatpartners’systems(forexample,complaintsandwhistle-blowing)toprotecttherightsoflocalchildrenandyoungpeople,thepublic,users,otherstakeholdersandstaff,includingaccesstoredress,areworkingeffectively?

Howdoestheboardmanagerisksandexercisepropercontrols?

• Howareboardmembersandrelevantpartnerstaffinformedaboutthelegalstatusofthechildren’strustarrangementsandthedecisionsitcantakeonitsownbehalfandonthatofitsmembers?

• Howdoestheboardusepartners’legal,financialandotherprofessionaladviserstoinformandscrutiniseitsdecisions?

• Howistheboardformallyheldtoaccountbyitspartnerorganisationsforthedecisionsitmakes,andtheimprovementinoutcomesforchildrenandyoungpeople?

• Howdoestheboarduseappropriateadvice,data,performancemonitoringinformation,andprogrammeevaluationstosupportitsdeliberationsanddecisions?

• Whatriskmanagementproceduresarethereto:

- Supportstrategicthinkingandforwardplanning;

- Assessandmanagetheopportunities-aswellasthehazards-ofpartnershipworking;and

- Clarifywhichpartnersareresponsibleformanagingspecificrisksatstrategic,executive,andoperationallevels?

• Howdoestheboardensurethereareappropriatecontrolstoensureprobityandvalueformoneyintheuseofresourcesitinfluences?

• Whataretheprotocolsformanagingandresolvingconflictsanddisagreementsbetweenpartnersabouttheachievementofthechildren’strustboard’sobjectives?

• Howaretheagendas,minutes,papersanddecisionstakenbytheboardcommunicatedtostakeholdersandthewiderpublic?

Selfassessmenttoolforchildren’strustsboards|Arewethereyet?|�1

Appendix1:StudymethodandresearchThisstudywasconductedunderSection33oftheAuditCommissionAct1998.Section33placesadutyontheAuditCommissiontoundertakestudies,tosupportrecommendationsandimprovetheeconomy,efficiency,andeffectivenessintheprovisionoflocalauthorityservices.

Thefindingsinthisresearcharebasedon: • ananalysisofpublishedresearchand

policyguidanceonchildren’strusts;

• fieldworkineightlocalauthorityareas,whichinvolvedin-depthsemi-structuredinterviewswithofficersandmembersfromthelocalauthority,aswellasotherpartnersinvolvedinchildren’strusts–forexample,districtcouncilsincountyareas;police;health;voluntaryandcommunitysector;and

• aseriesofinter-linkedtelephonesurveyswhichwerecarriedoutbyBMRBLtd.Theseinvolvedtelephoneinterviewswithdirectorsofchildren’sservices,LeadMembersonChildren’sServices,andrepresentativesfromdistrictcouncils,primarycaretrusts,police,voluntaryandcommunitysector,andschools.Theseinterviewslastedaround20minutes.InterviewswereundertakenfromthestartofNovember2007untiltheendofJanuary2008.Thetablebelowshowstheresponseratesthatwereachieved.

Sampleavailableforinterviews

Completedinterviews

Responseratespercentage

DirectorsofChildren’sServices 131 105 80LeadmembersonChildren’sServices 99 68 69Districtcouncils 93 66 71PCT 98 68 69Police 91 40 44Schools 77 46 60VCS 96 86 90

Completedstakeholdertelephoneinterviews

Source:Telephonesurveyofstakeholders.(Note:20outofthe34countycouncilssuppliedthecontactdetailsofatleastonedistrictlevelrepresentative.Wherepossible,districtsamplewasselectedfromtwocountycouncilsperEnglishregion.)

�2|Appendix1|Arewethereyet?

Fieldworkcouncils

162Thecouncils,andtheirpartners,whoparticipatedinfieldworkwere:

BarnsleyMetropolitanBoroughCouncil

CambridgeshireCountyCouncil

LancashireCountyCouncil

MertonLondonBoroughCouncil

StaffordshireCountyCouncil

SunderlandMetropolitanCouncil

TorbayCouncil

WalsallMetropolitanBoroughCouncilWearegratefulforthetimethatauthoritiestooktosetupourinterviews,andthetimetakenbythepeoplewhotookpartintheresearchforthisstudy.

163SarahWilson(onsecondmentfromNFER)JodieSmith,andRogerSykesmanagedtheresearchforthisproject.AlisonParkerprovidedtheprojectsupportduringtheresearch.TelephonesurveyswereundertakenbyBMRBInternational.MichaelHugheswastheprojectdirector.

Appendix1|Arewethereyet?|�3

Appendix2:ExternalAdvisoryGroup164 Thestudywassupportedbyan

ExternalAdvisoryGroup(EAG).MembersoftheEAGwereselectedtoprovidearangeofperspectivesonchildren’strusts.Memberscontributedbothfromtheorganisationstheyrepresented,aswellaspersonalviewsfromtheirknowledgeofchildren’strusts.

TheEAGmemberswere:ClairePhillips 11MillionChrisWaterman ADCSDeborahAbsalom BexleyCouncilJanKrauss CBIAndrewCampbell CLGAlisonBowerbank CLGGinaMahn DCSFSandraCullen DCSFHilarySamson-Barry DeptofHealthIrfonRees DeptofHealthPamScoular DeptofHealthSueVincent HealthcareCommissionMaddieBlackburn HealthcareCommissionTrishWilson HealthcareCommissionSueEardley HealthcareCommissionVicSandell IDeASteveWalker IDeAChrisHusbands InstituteofEducationMarkKenyon IPFCarolineAbrahams LGAAngelaHands NAOIanVallender NCVCCOJoeLevenson NCVCCOMarkBlake NCVYSMichaelCladingbowl OfstedAbbieLloyd YouthJustice& ChildrenUnitHomeOffice

165 TheAuditCommissionthanksallthemembersoftheEAGfortheirsupportandadvice.TheviewsexpressedinthisreportarethoseoftheAuditCommission.


Appendix3:Glossaryofterms

CAMHS

Childandadolescentmentalhealthservices(CAMHS)promotethementalhealthandpsychologicalwellbeingofchildrenandyoungpeople.Theyprovidehighquality,multidisciplinarymentalhealthservicestoallchildrenandyoungpeoplewithmentalhealthproblemsanddisorders.Inthiswaytheyensureeffectiveassessment,treatmentandsupport,forthemandtheirfamilies.

Children’sPlan

TheChildren’sPlanwaspublishedbytheGovernmentinDecember2007.Itsetsoutplansforthenexttenyearsforchildren,youngpeopleandtheirfamilies.Itoutlinessixstrategicthemestomakethishappen: • happyandhealthy;

• safeandsound;

• excellenceandequity;

• leadershipandcollaboration;

• stayingon;and

• ontherighttrack.

ThePlanoutlineshowthesethemeswillbetakenforwardoverthenextdecade.

ChildrenandYoungPeoplePlans(CYPP)

LocalauthoritieshaveadutyundertheChildrenAct2004toproduceaChildrenandYoungPeoplePlan(CYPP).TheCYPPshouldbethesinglestrategic,overarchingplanforallserviceswhichaffectchildrenandyoungpeopleinthearea,providedbythelocalauthorityandallrelevantpartners.ThelocalauthorityshouldpreparetheCYPPjointlywiththosepartners.TheGovernmentisconsultingonlegislativeoptionstostrengthenchildren’strusts.ThisincludesplanstostrengthenCYPPsbyrequiringallpartnerstobeinvolvedandhaveasharedresponsibilityfortheplan–soitceasestobeonlyalocalauthorityplan.

DepartmentforChildren,SchoolsandFamilies(DCSF)

TheDepartmentforChildren,SchoolsandFamilieswasestablishedinJune2007.ItspurposeistomakeEnglandthebestplaceintheworldforchildrenandyoungpeopletogrowup.Itfocusesonmakingchildrenandyoungpeoplehappyandhealthy;keepingthemsafeandsound;givingthematopclasseducation;andhelpingthemstayontrack.

Appendix3|Arewethereyet?|�5

EveryChildMatters(ECM)

EveryChildMattersisatenyearchangeprogrammeintroducedin2003aimedatbringinganewapproachtothewell-beingofchildrenandyoungpeople,frombirthtoage19.TheGovernment’saimisforeverychild–whatevertheirbackgroundortheircircumstances–tohavethesupporttheyneedto: • behealthy;

• staysafe;

• enjoyandachieve;

• makeapositivecontribution;and

• achieveeconomicwell-being.

Theexpectationisthatorganisationsprovidingservicestochildrenwillbeteamingupinnewways,sharinginformationandworkingtogether,toprotectchildrenandyoungpeoplefromharmandhelpthemachievewhattheywantinlife.Childrenandyoungpeoplewillhavefarmoresayaboutissuesthataffectthemasindividuals,andcollectively.

JointAreaReview(JAR)

Thejointareareviewisathree-yearprogrammerunninguntilDecember2008andall150localauthorityareaswillhaveonejointareareviewduringthistime.AJointAreaReviewjudgesthecontributionthatthecouncilanditspartnersinthelocalareaaremaking,toimproveoutcomesforchildrenandyoungpeople.

JointStrategicNeedsAssessment(JSNA)

Since1April2008,localauthoritiesandprimarycaretrustshavebeenunderastatutorydutytoproduceaJointStrategicNeedsAssessment(JSNA).TheJSNAwillinformtheLocalAreaAgreementsandtheSustainableCommunitiesStrategy.TheprocessofJSNAwillestablishthehealthandwellbeingneedsofapopulation,bothnowandinthefuture,leadingtoimprovedoutcomesandreductionsinhealthinequalities.Thisisapartnershipdutywhichinvolvesarangeofstatutoryandnon-statutorypartners,informingcommissioningandthedevelopmentofappropriate,sustainableandeffectiveservices.

LocalAreaAgreement(LAA)

LocalAreaAgreements(LAAs)areattheheartofthenewlocalperformanceframework.Theyhelpdelivertheambitionsfortheplaceanditspeople,setoutintheSustainableCommunityStrategy;theysetoutthe‘deal’betweencentralgovernmentandlocalauthoritiesandtheirpartnerstoimproveservicesandthequalityoflifeinaplace.LAAswillbetheonlyvehiclesforagreeingtargetsbetweenlocalgovernmentandtheirdeliverypartnersandcentralGovernment(exceptforthe16statutoryeducationandearlyyearstargets).



LocalSafeguardingChildrenBoard(LSCB)

LocalSafeguardingChildrenBoards(LSCBs)werecreatedasanimportantelementoftheimprovedsafeguardsforchildrenputinplacebytheChildrenAct2004.ThecreationofLSCBsfulfilssections13-16oftheact.TheLSCBanditsactivitiesarepartofthewidercontextofchildren’strustarrangements.EachlocalauthoritywasexpectedtohaveanLSCBinplacebyApril2006.TheLSCBisthekeystatutorymechanismforagreeinghowtherelevantorganisationsineachlocalareawillcooperatetosafeguardandpromotethewelfareofchildreninthatlocality,andforensuringtheeffectivenessofwhattheydo.

LocalStrategicPartnership(LSP)

LocalStrategicPartnerships(LSPs)providetheforumforcollectivelyreviewingandsteeringpublicresources,throughidentifyingprioritiesinSustainableCommunityStrategiesandLocalAreaAgreements.Asnon-statutorybodieshowever,theyarenottheultimatedecisionmakersonsuchplans.Alltarget-setting,andconsequentfinancial,

commissioning,orcontractualcommitmentsproposedbyLSPs,mustbeformalisedthroughtheaccountablelocalauthorityorthroughoneoftheotherLSPpartners.LSPsarenotstatutorybodiesandtherearenoprovisionsintheLocalGovernmentandPublicInvolvementinHealthActthatcreatealegalrelationshipbetweeneitherlocalauthoritiesand‘theLSP’ortheirpartnersand‘theLSP’.LSPsareacollectionoforganisationsandrepresentativescomingtogethervoluntarilytoworkinpartnership.

NationalIndicatorSet(NIS)

TheLocalGovernmentWhitePaperStrong and Prosperous CommunitiespublishedinOctober2007,committedtointroduceastreamlinedsetofindicatorsthatwouldreflectnationalpriorityoutcomesforlocalauthorities–workingaloneorinpartnership.AsinglesetofindicatorswasannouncedaspartoftheComprehensiveSpendingReview2007.ThesewillbetheonlyindicatorsthatGovernmentwillmeasurelocalgovernmentandtheirpartners;replaceallotherindicators(includingBestValuePerformanceIndicatorsandPerformanceAssessmentFrameworkindicators);andwillbereportedbyallareasfromApril2008.

Appendix3|Arewethereyet?|��

1

SustainableCommunityStrategy(SCS)

ThepurposeofaSustainableCommunityStrategy(SCS)istosettheoverallstrategicdirectionandlong-termvisionfortheeconomic,socialandenvironmentalwellbeingofalocalarea–typically10-20years–inawaythatcontributestosustainabledevelopmentintheUK.Ittellsthe‘storyoftheplace’–thedistinctivevisionandambitionofthearea,backedbyclearevidenceandanalysis.TheLocalGovernmentWhitePaper,StrongandProsperousCommunitiesclaimsthattheSustainableCommunityStrategywillprovide‘avehicleforconsideringanddecidinghowtoaddressdifficultandcrosscuttingissues,suchastheeconomicdirectionofanarea,cohesion,socialexclusionandclimatechange’.SustainableCommunityStrategiesshouldoutlinethelong-termvisionbasedfirmlyonlocalneeds;andkeyprioritiesforthelocalarea.

Unincorporatedassociations

Thecharacteristicsofanunincorporatedassociationhaveemergedprimarilyfromcaselaw.Anunincorporatedassociationisnotalegalentity: • itisanorganisationofmorethanone

person,orbodies,withanidentifiablemembershipthat’spossiblychanging;

• ithasamembershipwhoareboundtogetherforacommonpurposebyanidentifiableconstitutionorrules(whichmaybewrittenororal),

• itisanorganisationwheretheformofassociationisnotrecognisedinlawasbeingsomethingelse(forexample,anincorporatedbodyorapartnership);

• itmusthaveanexistencedistinctfromthosepersonswhowouldberegardedasitsmembers;and

• thetiebetweenthepersonsneednotbealegallyenforceablecontract.

Thereisnoreasonwhyanunincorporatedbodyshouldnothavetradingorbusinessobjects,orcarryonsignificantcommercialactivities.

��|Appendix3|Arewethereyet?


1

1 TheVictoriaClimbiéInquiry–reportofaninquirybyLordLaming,2003.

2 HMGovernment,Every Child Matters,HMGovernment,2003.

3 AlanMilburnstatementtoHouseofCommonsonLamingreporton28January2003.

4 DHGuidance,Children’sTrusts–InvitingAuthoritiestobeChildren’sTrustPilots,DH,30January2003.

5 Section31oftheHealthAct,1999.

6 HMGovernment,StatutoryGuidanceonInter–agencyCooperationtoImprovetheWellbeingofChildren:Children’sTrusts,HMG,2005.

� ConsultationondraftStatutoryGuidance,onInteragencyCo–operationtoImprovetheWellbeingofChildren:Children’sTrusts,ajointresponseonbehalfoftheinter-agencygroup(LGA,ConfED,ADECS,NCH,Barnardo’s,theConnaughtGroup,ACPO,ADSS,NCB,Children’sSociety,2004.

� DCSF,EveryChildMatters:NextSteps,DCSF

� Safe and Stronger Communities:theLocalGovernmentWhitePaper,2006

10 CLGandDCSFDeliveringimprovedoutcomesforchildren,youngpeopleandtheirfamilies:thecrucialroleofthenewlocalperformanceframework,2007

11 AuditCommission,CSCI,HealthcareCommission,HMIC,HMInspectorateofPrisons,HMInspectorateofProbation,Ofsted,Comprehensive Area Assessment: Joint Inspectorate Proposals for Consultation,2008.

12 DCSF,TheChildren’sPlan:BuildingBrighterFutures,DCSF,2007.

13 DCSF,Children’sTrusts:StatutoryGuidanceonInter–agencyCooperationtoImprovetheWell¬beingofChildren,YoungPeopleandFamilies,DCSF,2008.

14 HMGovernment,CreatingStrong,SafeandProsperousCommunities:StatutoryGuidance,HMG,2008.

15 CLG,StrongandProsperousCommunities:TheLocalGovernmentWhitePaperImplementationPlan:OneYearOn,CLG,November2007.

Appendix4:References

Appendix4|Arewethereyet?|��

16 AuditCommission,GoverningPartnerships:–BridgingtheAccountabilityGap,2005.

1� LocalAuthoritiesResearchConsortium,EvaluatingtheEarlyImpactofIntegratedChildren’sServices.Slough:NFER,LocalAuthoritiesResearchConsortium,2008.

1� NationalYouthAgency,InvolvingChildrenandYoungPeople–AnIntroduction,NationalYouthAgency,2007.

1� NYA/LGA,HearbyRight:StandardsfortheActiveInvolvementofChildrenandYoungPeople,NYA/LGA,2005.

20 HMGovernment,JointPlanningandCommissioningFrameworkforChildren,YoungPeopleandMaternityServices,HMG,2006.

21 OfficeforPublicManagement,IntegratedCommissioningforChildren’sServices,London:OPM,2007.

22 AuditCommission,Healthy Competition,AuditCommission,2007.

23 DH,WorldClassCommissioning,DH,2008.

24 AuditCommission,People,PlacesandProsperity,AuditCommission,2004.

25 DFES,EngagingtheVoluntaryandCommunitySectorinChildren’sTrusts,DFES,2005.

26 ConfidentialEnquiryintoMaternalandChildDeathsWhy Children Die,2008.

2� IndependentCommissiononGoodGovernanceinPublicServices2004(OfficeforPublicManagementandCipfa)


Appendix4:References

Printed in the UK for the Audit Commission by Trident PrintingDesign and production by the Audit Commission Publishing Team

Abbreviations

CAMHS: Child and Adolescent Mental Health Services

CYPP: Children and Young People Plans

DCSF: Department for Children, Schools and Families

ECM: Every Child Matters

JAR: Joint Area Review

JSNA: Joint Strategic Needs Assessment

LAA: Local Area Agreement

LSCB: Local Safeguarding Children Board

LSP: Local Strategic Partnership

NIS: National Indicator Set

SCS: Sustainable Community Strategy

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