Community planning in North Ayrshire
Prepared for the Accounts Commission and the Auditor General for Scotland March 2013 The Accounts Commission
The Accounts Commission is a statutory, independent body which, through the audit process, requests local authorities in Scotland to achieve the highest standards of financial stewardship and the economic, efficient and effective use of their resources. The Commission has four main responsibilities:
• securing the external audit, including the audit of Best Value and Community Planning
• following up issues of concern identified through the audit, to ensure satisfactory resolutions
• carrying out national performance studies to improve economy, efficiency and effectiveness in local government
• issuing an annual direction to local authorities which sets out the range of performance information they are required to publish.
The Commission secures the audit of 32 councils and 45 joint boards and committees (including police and fire and rescue services).
Auditor General for Scotland
The Auditor General for Scotland is the Parliament’s watchdog for helping to ensure propriety and value for money in the spending of public funds.
She is responsible for investigating whether public spending bodies achieve the best possible value for money and adhere to the highest standards of financial management.
She is independent and not subject to the control of any member of the Scottish Government or the Parliament.
The Auditor General is responsible for securing the audit of the Scottish Government and most other public sector bodies except local authorities and fire and police boards.
The following bodies fall within the remit of the Auditor General:
• directorates of the Scottish Government • government agencies, eg the Scottish Prison Service, Historic Scotland • NHS bodies • further education colleges • Scottish Water • NDPBs and others, eg Scottish Enterprise.
Audit Scotland is a statutory body set up in April 2000 under the Public Finance and Accountability (Scotland) Act 2000. It provides services to the Auditor General for Scotland and the Accounts Commission. Together they ensure that the Scottish Government and public sector bodies in Scotland are held to account for the proper, efficient and effective use of public funds. Community planning in North Ayrshire 1 Contents
Commission findings Page 2
The audit of community planning Page 4
Summary Page 7
Part 1. Local context Page 10
Part 2. Leadership and governance Page 14
Part 3. Managing performance Page 17
Part 4. Use of resources Page 21
Part 5. Working together Page 25
Part 6. Impact and outcomes Page 29
Part 7. Improvement agenda Page 38 2 Commission findings Commission findings 3
1. We are grateful to North Ayrshire 6. We welcome that partners have Community Planning Partnership for been improving how they work with volunteering to take part in one of each other, though we note that the three early audits of community there is still substantial distance to planning, especially at this time of go before partners can demonstrate significant change. effective sharing of resources. Their ambitious neighbourhood 2. These findings should be planning approach has the potential considered alongside the to tailor partnership working to local Commission’s general conclusions needs, particularly if the partnership on community planning in Scotland, can build on the good record of published in our accompanying report. individual partners engaging with Community planning provides a clear their communities. The Multi-Agency opportunity to deliver a step change Problem Solving Group is a good in the performance of public services. example of how good use of local We have found that partnership data, effective joint working and working is well established and there community engagement can lead to are many examples of joint working positive outcomes. that are making a difference for specific communities. But Community 7. The partnership needs to improve Planning Partnerships (CPPs) are not how it manages its performance, yet able to demonstrate that they have including better target-setting and had a significant impact in delivering stronger scrutiny and challenge. It is improved outcomes across Scotland. also essential that individual partners better reflect community planning 3. The need to improve performance priorities in their own planning goes beyond individual CPPs. arrangements. Delivering change to help meet the demanding requirements of 8. Community planning in North the Statement of Ambition for Ayrshire, while not yet yielding community planning will require significant results in changing wider strong and sustained leadership at outcomes, is moving in a positive national and local level. direction: we look forward to seeing this maintained and developed. 4. This will not be straightforward: the outcomes that CPPs are trying to improve are complex and deep rooted. CPPs therefore need to be clearer about their priorities for improving their area. They need to focus their efforts through using their combined resources, skills and expertise.
5. We are encouraged that community planning in North Ayrshire is well established. The CPP has a good focus on the needs of the area and it is aware of how it can improve. Its focus on fewer priorities is a good building block. 4 The audit of community planning The audit of community planning 5
Background 3. All councils have established a for the Scottish public sector. The Community Planning Partnership to Christie Commission report on the 1. Community planning is the process lead and manage community planning future of public services highlighted by which councils and other public in their area. CPPs are not statutory the need for a new, more radical, bodies work together, with local committees of a council, or public collaborative culture throughout communities, and the business and bodies in their own right. They do not Scotland’s public service. It called for voluntary sectors, to plan and deliver directly employ staff or deliver public a much stronger emphasis on tackling better services and improve the lives services. Under Section 19 of the Act, the deep-rooted, persistent social of people who live in Scotland. it is possible for the CPP to establish problems in communities across the the partnership as a legally distinct country to enable public bodies to 2. Community planning was given corporate body. Some CPPs have respond effectively to these financial a statutory basis by the Local considered this option but, to date, challenges.4 Government in Scotland Act 2003 none has taken it forward. (the Act). Under the Act: 7. The Scottish Government’s 4. In 2007, the Scottish Government response to the Christie Commission • Councils have a duty to initiate, and the Convention of Scottish included a commitment to review facilitate and maintain community Local Authorities (COSLA) signed community planning. That review planning. a Concordat, setting out the new led to the publication of a Statement relationship between the Scottish of Ambition for community planning • NHS boards, the police, the fire Government and local government. which stated that effective community and rescue services, and the This included introducing Single planning arrangements will be at the enterprise agencies (Scottish Outcome Agreements (SOAs) core of public service reform. CPPs Enterprise and Highlands and between individual councils and must seek out opportunities for Islands Enterprise) have a duty to the Scottish Government. Each integrating public services, provide participate in Community Planning. SOA outlined the council’s strategic services that help to prevent problems This duty was later extended to priorities, expressed as local arising and continuously improve Regional Transport Partnerships.1 outcomes, and identified how these public service delivery to achieve would contribute to achieving the better outcomes for communities.5 • Community Planning Partnerships Scottish Government’s 15 national The Statement of Ambition also (CPPs) are required to engage outcomes. Since 2009/10, CPPs, emphasises the need for all partners with communities, report on rather than councils, have been to have collective accountability for progress, and publish information responsible for developing SOAs. delivering services. This includes on how they have implemented being accountable for their own their duties and how outcomes 5. The structure of CPPs and the contribution to local planning. have improved as a result.2 areas they cover vary considerably, depending on the size and geography Previous audits of community • Scottish ministers (through the of the council area, the local planning and partnership working Scottish Government and its economy, local political priorities, and 8. Audit Scotland’s national report agencies) have a duty to promote socio-demographic factors such as Community planning: an initial review, and encourage community age, gender, and relative wealth. 2006, found that there had been planning. some progress with community The Christie Commission and the planning, but that important issues • Councils can invite other bodies Scottish Government and COSLA needed to be dealt with: such as colleges, higher education review of Community Planning institutions, business groups, 6. Between 2011/12 and 2014/15, • The complexity of community voluntary organisations and the Scottish Government’s spending planning structures and different community groups to take part will fall by 5.5 per cent (£1.5 billion) accountabilities could be a barrier in community planning, although in real terms.3 Reductions of this to effective working. these are not statutory partners. scale are a significant challenge
1 Transport (Scotland) Act 2005. 2 The Local Government in Scotland Act 2003 – Community Planning: Statutory Guidance, Scottish Executive, 2004. 3 Table 6.02 – Departmental Expenditure Limits, applying the following deflators: 2012/13 = 2.5 per cent; 2013/14 = 2.7 per cent; 2014/15 = 2.7 per cent, Scottish Spending Review 2011 and Draft Budget 2012-13, , Scottish Government, September 2011. 4 The Commission on the Future Delivery of Public Services, Christie Commission, June 2011. 5 Review of Community Planning and Single Outcome Agreements: Statement of Ambition, Scottish Government and COSLA, March 2012. 6
• Performance management and About the audit • Strategic direction – has the monitoring processes were not CPP set a clear strategic direction, well developed. 12. The role of community planning in with clear improvement priorities, improving Scotland’s public services agreed by all partners, which • Community engagement could be has become increasingly important. reflect the needs of the area, and more sustained and systematic. The Scottish Government therefore are based on effective community asked the Accounts Commission to engagement? • CPPs should be clearer about lead development work to prepare the money and other resources an outline case on how external audit • Governance and accountability required to achieve their and inspection might hold Community – does the CPP have effective outcomes.6 Planning Partnerships (CPPs) to governance and accountability account for their performance and arrangements, and is it able to 9. Audit Scotland’s 2011 national help them to deliver better outcomes. demonstrate effective shared report The role of community leadership which ensures planning partnerships in economic 13. The Accounts Commission and the improved outcomes for the area? development found that: Auditor General for Scotland worked with their scrutiny partners (Education • Performance management and • CPPs have an important role Scotland, Care Inspectorate, use of resources – has the CPP in planning and coordinating Her Majesty’s Inspectorate of established effective performance improvements to local economies Constabulary for Scotland (HMICS), management arrangements the Scottish Housing Regulator which are delivering performance • the introduction of Single (SHR) and Healthcare Improvement improvements (including effective Outcome Agreements (SOAs) had Scotland). They worked with COSLA, self-evaluation arrangements) improved how CPPs monitor and the Society of Local Authority and securing best use of public report progress. Chief Executives (SOLACE) and resources (including service the Scottish Government. The integration)? 10. However, it also found that many Accounts Commission and the of the problems identified in 2006 Auditor General developed an audit • Impact and outcomes – can persisted.7 framework designed to strengthen the the CPP show its actions are accountability of Community Planning making a difference for the area 11. Audit Scotland’s 2011 national Partnerships and supporting improved and improving outcomes for local report on Community Health performance. Those proposals were people? Partnerships (CHPs) found that submitted to the Cabinet Secretary for approaches to partnership working Finance, Employment and Sustainable 16. The audit of North Ayrshire had been incremental and there growth in June 2012. Community Planning Partnership was a cluttered partnership (CPP) was carried out in September landscape. CHPs were set up in 14. Aberdeen, North Ayrshire, and 2012, by a team from Audit addition to existing health and social the Scottish Borders Community Scotland, with support from the care partnership arrangements in Planning Partnerships agreed to Care Inspectorate, Education many areas. This had contributed participate in three early audits to Scotland and HMICS. We gratefully to duplication and a lack of clarity help the Accounts Commission and acknowledge the co-operation and of the role of the CHP and other the Auditor General for Scotland test assistance provided to the audit partnerships in place in a local area. the CPP audit framework. For the team by all the CPP partners and Partnership working for health first time, these audits focus on the representatives involved in the audit. and social care requires strong, impact and effectiveness of individual We are particularly grateful for the shared leadership by both NHS CPPs, rather than community constructive approach adopted by the boards and councils. Differences in planning as a process. CPP to the audit process at a time of culture, planning and performance significant change and development management arrangements are 15. The overall aim of our audits for the CPP in response to the barriers that need to be overcome. was to assess the effectiveness of Scottish Government and COSLA community planning in each area. We community planning review. did this by gathering and evaluating evidence to allow us to answer the following four questions:
6 Community planning: an initial review, Audit Scotland, 2006. 7 The role of community planning partnerships in economic development, Audit Scotland, 2011. 7 Summary 8
17. Community planning is well living in the most and least 25. The Multi-Agency Problem established in North Ayrshire. deprived parts of North Ayrshire Solving Group (MAPSG) is a good The CPP has a good record of remains significant. example of partners working together critically reviewing and refining and effectively using local data to local partnership working and 22. An important expectation of coordinate actions and improve local joint planning. CPP structures and community planning is that partners outcomes. It has made a difference relationships position it well to work together to better align and for local people by improving the contribute to and influence public share their resources towards quality of the local environment service reform developments locally. meeting agreed goals. Together, and reducing antisocial behaviour. The CPP has also streamlined and the main local partners in North The CPP needs to consider how prioritised its activities, and there are Ayrshire spend over £500 million to sustain this success, and how examples of CPP partners working a year, but the CPP cannot yet to apply more widely the success together to improve outcomes. demonstrate significant examples of factors from this and other local joint There are pockets of good practice sharing resources to achieve better working initiatives. in many aspects of CPP working but, outcomes, or of directing resources overall, health, economic and social towards agreed priorities. As 26. The CPP has demonstrated a outcomes for citizens remain poor. pressures on budgets and demands good awareness of the need to on services increase, CPP partners strengthen its focus on identifying 18. North Ayrshire is one of need to better align their combined and intervening early in problem Scotland’s five most deprived local resources to secure efficiencies. areas. Its early and effective authority areas. The area faces intervention initiative and an early significant, complex long-term 23. The CPP has recognised that it years intervention programme in two challenges in employment, health and needs a sharper focus on delivering communities are good examples of community safety, which the CPP improved outcomes. Its 2012/13 its attempts to do this. But it needs has focused on for many years. The interim SOA focuses on fewer and to quantify the benefits these are CPP’s shared vision for improving clearer outcomes than previous delivering and consider how to build outcomes in North Ayrshire, to which SOAs and has a streamlined on good practice. all the partners are committed, clearly set of actions and indicators. In reflects the area’s main challenges. implementing its new SOA, the 27. The Statement of Ambition CPP needs to translate the agreed highlights the need to strengthen 19. Historically, the council led priorities, outcomes and actions into how CPPs work with local community planning activity. The a plan that: communities to unlock their potential last 18 months have seen more and encourage them to take a involvement of partners in planning • recognises the differences in need more active role in identifying and and development activities, with across North Ayrshire delivering local improvements. constructive working relationships Individual partners in North Ayrshire between partners and an improving • targets partnership activity and have shown some good community balance of leadership and support. public money accordingly engagement practice, but this is not yet shared effectively across the CPP. 20. The challenges facing Community • delivers improved outcomes for The CPP recognises that it needs to Planning Partnerships are complex. neighbourhoods and the wider develop further its consultation and Deep-seated social issues can take community. engagement activity, to get a clearer many years, if not decades, to picture of, and better reflect, local resolve. In addition, with many factors 24. The CPP has recognised the need community needs. It has established at play, it can be difficult to match for change and is seeking to improve a dedicated group to do this, but partnership actions and investments its effectiveness, through its ambitious progress has been limited. with subsequent changes in Neighbourhood Planning Approach. community outcomes such as health Through this, partners aim to: 28. The Scottish Government and and deprivation. COSLA’s community planning review • tailor local service delivery to is clear that CPPs should maintain 21. The CPP has made good reflect local needs strategic oversight of broader aspects progress in specific areas including of public service reform. This includes community safety and employment • deliver better joined up local health and social care integration, and skills programmes, but it has not services the creation of single Scottish police improved overall outcomes for North and fire services. North Ayrshire CPP Ayrshire. Jobs growth and improving • make better collective use of has a good foundation to take on this health remain major challenges, public money. role. Partners already work closely and the outcome gap for individuals together on health and social care Summary 9
issues through the Local Community Health Partnership, and the chair of the Safer North Ayrshire Partnership ensures a link to the council’s Shadow Police and Fire Committee.
29. The CPP has established a performance management system to monitor progress against SOA actions and indicators, including regular reporting to the CPP’s core groups. However, in practice, the CPP’s scrutiny and challenge of performance are limited. Individual partners also need to include SOA commitments within their planning and performance management arrangements. The CPP Board and Senior Management Team (SMT) need to take a stronger role in setting the direction for its strategic groups and in scrutinising performance and improvements more effectively.
30. The CPP’s structures, group memberships and processes provide a good basis for meeting the Statement of Ambition’s demanding expectations of CPPs. It has set itself ambitious improvement goals, with its neighbourhood planning approach and improving performance management arrangements.
31. The neighbourhood planning approach could lead to significant changes in the way services are delivered, including the way partner resources are deployed. To make this a success, partners will need to build on their working relationships, and clearly identify the required resources and individual commitments to deliver the CPP’s priority outcomes. 10 Part 1. Local context Part 1. Local context 11
Community planning in North • Economy – Strathclyde Police Ayrshire • Community safety – Strathclyde Fire and Rescue 32. The Community Planning Partnership was formed in 2000, • Environment – The Scottish Government several years before the statutory introduction of community planning. • Housing. – Scottish Enterprise The North Ayrshire Community Plan 2000–10 was based on the strategic 36. The CPP also introduced specific – Skills Development Scotland plans already produced by local partner groups to strengthen community groups and partnerships. The 2005 engagement. At the same time, new – Strathclyde Partnership for Audit of Best Value and Community CHP structures were implemented Transport Planning in North Ayrshire found that nationally. In North Ayrshire, the the CPP priorities reflected local issues, CHP established three – Third sector interface and that partners worked effectively thematic groups. with communities. However, North – Irvine Bay Regeneration Ayrshire’s strategic aims were 37. After the first year of the 2009–12 Company aspirational and not translated into SOA, the CPP undertook a full end- specific actions. At that time the of-year governance review. This led – Jobcentre Plus. partnership was also too focused on to the CPP removing the housing structures and processes, rather than and environmental partnerships from • Strategic Management Team: delivering improved outcomes. its structure on the basis that their assigns tasks to the Strategic activities were already integrated Partnership Groups and 33. Following the Best Value audit, the in the council’s and its partners’ scrutinises their performance. It CPP commissioned an external review business. The CPP also established a comprises North Ayrshire Council which identified the need for it to: new CPP Management Group – later (chief executive and senior renamed the Strategic Management management), NHS Ayrshire and • establish a clear shared vision and Team, comprising directors or senior Arran, Strathclyde Police, Irvine set of shared priorities, rather than representatives from the council, Bay Regeneration Company. simply joining up what individual NHS, police service and the Irvine partners do Bay Regeneration Company. As • Strategic Partnership Groups part of the review, a police chief (CHP, community safety • clearly identify the role of inspector for North Ayrshire extended and economy partnerships): community planning in adding his involvement and role, by also implement specific SOA value to what is already going on. becoming the council’s director of outcomes, oversee subgroups, Community Safety. The current and manage funds allocated 34. This led to the CPP partners structure is set out in Exhibit 1 by the CPP. All groups have a reshaping the ten-year community (overleaf). diverse membership, including vision around an agreed set of shared significant representation from priorities covering the economy, 38. The roles and remits of the the council. Various subgroups health, community safety, education, groups are as follows: report to the groups, for example equalities, and the environment. the Alcohol and Drug Partnership At that time, the partnership had • CPP Board: sets the strategic to the CHP. a strong focus on regeneration. direction for community Partners were also making progress planning in North Ayrshire and • Community engagement on integrating services for children is accountable for delivering the network and community and young people, and introducing SOA and allocating resources. engagement reference groups: aspects of shared delivery of health Its membership comprises responsible for community and other services. representatives of: engagement and sharing good practice. The reference group 35. North Ayrshire CPP prepared its –– North Ayrshire Council (the is chaired by a third sector first partnership SOA, North Ayrshire leader chairs the board, and representative and has a diverse – a better life, in June 2009. As part five elected members and the membership, with strong of that process, the CPP streamlined chief executive also attend) representation from the council. its governance structure around four strategic groups, with responsibility –– NHS Ayrshire and Arran (the for the following themes: chair and the chief executive) 12
Exhibit 1 North Ayrshire CPP planning and governance structure as at September 2012
North Ayrshire CPP Structure
CPP Board CPP Community Engagement Reference Community Health Group Partnership (CPP) Strategic Management Team CPP shared priority: Tackling health inequalities CPP Community Engagement Network
CPP Strategic Partnerships CHP Groups Delivery against above CPP shared priority and related SOA outcomes
North Ayrshire Safer North Economic and Ayrshire CHP Officer CHP Officer CHP Forum Alcohol Learning Partnership Partnership Locality Locality and drugs Group: Group: Adult partnership CPP shared priority: CPP shared priority: Integrated Services Tackling worklessness Tackling community Children’s related SOA outcomes safety related SOA Services outcomes
Note: CPP structure as at September 2012, after which the economy theme was taken forward by the Economic Development and Regeneration Board, see section of this report: Impact and Outcomes, a working North Ayrshire. Source: North Ayrshire CPP
Area profile 40. North Ayrshire has relatively high North Ayrshire gradually declined 39. North Ayrshire covers 885 sq km, and increasing levels of deprivation. as the reduction in manufacturing – split almost equally between the It is one of the five most deprived reflecting the trend across much of the mainland and the islands of Arran and local authority areas in Scotland, with UK – affected the local economy and Cumbrae, with a mix of urban and about a quarter of its data zones employment patterns. rural areas. The population is about falling within the most deprived 138,000 and is estimated to decrease 15 per cent of data zones in Scotland. 41. Employment rates in North by some four per cent by 2033. The These include six regeneration areas, Ayrshire have been below the national population of pensionable age is covering parts of Irvine, Kilwinning, average for much of the last decade. projected to increase by about Ardrossan, Saltcoats, Stevenston and The gap widened further in 2011, 26 per cent over this period, while the Kilbirnie (Exhibit 2). North Ayrshire’s running at 61.4 per cent among 16 to population of working age is projected economy has traditionally depended 64-year-olds, compared to 71 per cent to decline. This demographic shift on manufacturing jobs. This led to for Scotland overall. Unemployment brings significant challenges for the its expansion in the 1950s, and the and levels of dependency on benefits area, particularly in care for the elderly redevelopment of Irvine as a new town are also significantly higher than the and sustaining communities. in the late 1960s and early 1970s. national averages. Part 1. Local context 13
Exhibit 2 North Ayrshire map showing income deprivation
Kilbirnie
Kilwinning Ardossan Stevenston Isle of Saltcoats Arran Irvine
Firth of Clyde
Income deprivation 2009/10 0–16 16–19 19–22 22–24 22–28
Note: Percentage of residents classified as income deprived by multi-member ward area, 2009/10. Source: Scottish Government
42. There is a high reliance on significant disparity in health within employment in public administration, North Ayrshire. For example, there education and health in the area. Taken is a 15-year gap in life expectancy together, they account for about 30 per between men living in the least and cent of jobs. Although manufacturing most deprived areas. has been in decline, a higher proportion of local people are employed in 44. Educational attainment is, and manufacturing than nationally, while has been historically, below the the proportions employed in finance, IT, Scottish average. However, the gap and other business activities are lower. has narrowed since 2005, and in 2011 North Ayrshire attainment at 43. Average life expectancy in SCQF8 level 3 was above national North Ayrshire is below the Scottish and comparator averages. There is average. Lifestyle problems affect also some evidence of improvement health and wellbeing, including in aspects of crime and community the misuse of alcohol and drugs, safety, but this varies significantly smoking and obesity. There is also between wards.
8 The Scottish Credit and Qualifications Framework. 14 Part 2. Leadership and governance Part 2. Leadership and governance 15
The CPP has set a clear evidence- the SOA priorities, and to develop the The CPP’s Neighbourhood Planning based vision for improving next SOA. The development days Approach is an ambitious project outcomes in North Ayrshire were attended by a wide range of to better align and target partners’ 45. The Local Government in partners and elected members, and resources Scotland Act 2003 requires CPPs to provided useful forums for partners 52. In 2012, the CPP agreed to develop and set out a joint vision, to contribute to developing the CPP’s develop a neighbourhood planning supported by shared objectives plans and actions. approach, intended to help it better for the area, and jointly agreed, understand local needs throughout challenging performance outcomes 49. The CPP recognised that its North Ayrshire, and then to target that improve services.9 The Scottish initial SOA, agreed in 2009, lacked resources and activity accordingly. Government and COSLA’s joint a clear focus, and had too many The CPP describes the approach Statement of Ambition highlights priorities and outcome measures. Its as follows: the importance of CPPs developing 2010 governance review, following what it terms an explicit and binding the first year of operating the SOA, ‘The neighbourhood planning ‘plan for place’ to deliver improved resulted in the CPP removing housing approach is about ensuring that local outcomes. The expectation and environmental activities from public sector resources are targeted being that the plan should be based its remit. This is a good example at those local areas most in need in on a clear and evidence-based of the CPP beginning to focus on North Ayrshire, delivering successful understanding of local needs and areas where it can make a greater outcomes for our local communities.’ opportunities, drawn from reliable contribution to improving local and relevant data.10 public services. From 2010/11, the 53. The CPP has established a team CPP adopted three overall priorities of partners, chaired by the council’s 46. The North Ayrshire CPP’s vision is centred on the economy, health, and director of Social Services and focused on three priorities: community safety. Health, to develop the approach. At the time of the audit, the team • A working North Ayrshire 50. The CPP has translated these had defined the neighbourhood three overall priorities into related boundaries, and was in the process • A healthy and active North outcomes. For example, its ‘a of gathering data from partners to Ayrshire working North Ayrshire’ priority complete a needs analysis for each has nine associated outcomes, neighbourhood. The next steps • A safe and secure North Ayrshire. including: ‘more people are in work include identifying resources and and training’ and ‘North Ayrshire is a planning local services to meet the 47. The vision and associated more attractive tourist destination’. SOA outcome priorities, including improvement priorities for the The CPP has continued to sharpen opportunities for joint working and economy, health, and community its focus. The 2012/13 interim sharing buildings. The CPP plans to safety were agreed by partners SOA has reduced the number of have completed these activities by and are clearly set out in the CPP’s outcomes from 35 to 21, and the summer 2013. This is a significant SOA. The priorities were informed number of associated indicators from undertaking that offers the potential by an area profile analysis for North 75 to 49. This reflects a clearer focus to address inequalities between Ayrshire and reflect the challenges on areas where the CPP believes areas, and to develop closer facing the area. The CPP also it can make an impact and improve partnership working. consults representative groups, local outcomes. the public and elected members The CPP has appropriate on the SOA. 51. Citizens who participated in the representation and governance CPP’s 2012 People’s Panel survey structures in place. But it needs to 48. The SOA recognises local expressed concerns about welfare focus more strongly on directing variations within North Ayrshire reform. The CPP has acknowledged partnership activities and holding and the area profile analysis that this is a significant issue for partners to account for delivering included national comparisons and the area, particularly because of the improved outcomes trends. The CPP has a participative relatively high number of people 54. The Local Government in approach to developing the vision who depend on benefits. It will Scotland Act 2003 clearly sets and priorities. In 2012, it introduced be important that the CPP takes out the importance of shared Board Development Days, to discuss account of this when developing its leadership in community planning. performance to date against each of next SOA. It states that leadership should be
9 The Local Government in Scotland Act 2003 – Community Planning: Statutory Guidance, Scottish Executive, 2004. 10 Review of Community Planning and Single Outcome Agreements: Statement of Ambition, Scottish Government and COSLA, March 2012. 16
carried out by the organisation best 58. The North Ayrshire CPP’s terms 62. Forthcoming changes to the placed to perform this role and that of reference set out clear roles for structure of police and fire and rescue partners should be encouraged to its groups, and memberships of the services will also have implications lead on appropriate themes. The CPP core groups are appropriate for the CPP. As described previously, Scottish Government and COSLA’s for the activities for which they a Strathclyde police chief inspector joint Statement of Ambition for are responsible. is also the director of community community planning reinforces the safety for North Ayrshire Council, importance of shared leadership. 59. As we noted previously, the CPP and chairs the Safer North Ayrshire It emphasises that CPPs should has undertaken a series of reviews Partnership. In October 2012, the be genuine boards, with all the and has restructured to improve and council’s shadow police and fire associated authority, behaviours and develop the SOA, and to streamline committee, which the chief inspector roles that this implies, for both them its activities. It has put in place the attends, considered a discussion and constituent partners. necessary building blocks, in terms paper on how the committee links to of structures, memberships, and the CPP. The committee agreed that 55. Partners’ planning and processes. The CPP recognises that the current governance arrangements performance management it must now focus more strongly on and links to community planning were arrangements broadly align with the delivering outcomes. This is not a fit for purpose and that they should SOA priorities, but do not explicitly new issue and the 2005 Best Value be reviewed again in six months time. include the outcome areas set out and Community Planning audit noted in the SOA. Without a clear link that the focus of the partnership had 63. This framework and close between the SOA and partners’ been on structures and processes partner working provides a good individual plans, there is a risk that rather than on delivering real changes basis for monitoring, discussing and partners will not deliver on the SOA for citizens. influencing the future relationship priorities and outcomes. between the national police and The CPP is actively considering fire services and the local authority, 56. Partners acknowledge that, how it can effectively oversee the reflecting the Scottish Government’s historically, the council carried local implementation of police, fire, ambition to establish good local links out most of the CPP planning, and health and social care reform between area commanders and local coordination and monitoring. All 60. The Scottish Government and authorities. Our audit has found that partners agree that this has changed COSLA’s review of community community safety is one of the areas in the last 18 months, with new planning is clear that CPPs should where the CPP has achieved greatest members bringing a fresh impetus maintain strategic oversight of how success in partnership working. Since to the CPP, including private and broader aspects of public service these successes have often involved third sector representatives and reform are being implemented locally. the police and fire and rescue elected members. We found This includes health and social care services, it will be important that the evidence of wider involvement integration and the local impact of move to single services does not from other partners in strategic and creating single police and fire and dilute these partners’ contribution or development activities. rescue services for Scotland. The weaken local partnership working. CPP has discussed the implications 57. The 2011 Best Value audit of of these changes, and its current North Ayrshire Council noted that the structures provide a good framework council and NHS Ayrshire recognised for taking on this important role. that they needed to develop a more effective working relationship. These 61. CPP partners are already working partners are now more positive together on health and social care about their working relationships issues through the CHP. The CHP within the CPP, and we found that has begun detailed discussions about NHS representatives are making integration, including the financial an active contribution across the implications of integrating adult health CPP groups, for example an NHS and social care, and the challenges representative chairs a group set and potential opportunities for joint up to develop robust performance working. While partners recognise information to support the CPP and the need for clear reporting lines, they its neighbourhood planning project. expressed confidence that the CPP will link strongly with revised health and social care arrangements. 17 Part 3. Managing performance 18
The CPP has established a up actions. More challenge takes 70. Some areas within the interim performance management place within the strategic partnership SOA 2011/12 lack clear targets, framework, but it is not used groups. However, the three strategic which will make it difficult for the effectively to challenge under- partnerships did not routinely consider partnership to challenge progress. performance and improve outcomes, focusing instead on This is particularly evident in the area local outcomes individual initiatives. The CPP Board of health where targets were not 64. Strong, reliable performance and the SMT should provide stronger specified for most indicators. For management is an essential challenge and direction, including example, reducing the harmful effects component of an effective community allocating actions, to ensure that the of alcohol misuse is a priority. But, of planning process. The 2003 Act sets CPP is accountable for, and delivering, the three indicators that relate to this, out the need for CPPs to monitor the SOA priorities. two lack targets, despite previous progress against agreed outcomes years’ data being available. The CPP and to use that monitoring to improve The CPP does not report clearly on should consider how it can improve local service planning and delivery. progress against outcomes its target-setting, including using The Statement of Ambition places 68. Reporting of outcomes is not proxy measures where targets are great emphasis on the role of CPPs in well developed. The SOA identifies difficult to set. monitoring performance over time and outcomes under each of its three ensuring continuous improvement. priority areas, but the performance 71. The CPP has acknowledged indicators and targets that support significant inequalities in outcomes 65. The CPP has a performance these do not always capture an between communities in North management framework and system appropriate range of information. For Ayrshire. The interim SOA does not in place. Quarterly performance example, the ‘people are more active yet place a specific focus on this reports are considered at the CPP more often’ outcome is supported issue. Previous iterations did specify Board, the SMT and by each of with two performance indicators, inequalities as an issue, and the CPP’s the three strategic partnerships which are focused on attendance neighbourhood planning approach (Economic and Learning Partnership, at public pools and at public sports is intended to target resources to Safer North Ayrshire Partnership and facilities. A significant number of address inequalities in outcomes. the Community Health Partnership). people will pursue active lives in other The performance reports cover areas ways, such as golf, running, and team 72. Individual partners’ plans that are working well, and areas sports, and none of this activity will and performance management that need to improve. They include be captured. The CPP does capture arrangements do not explicitly set both performance data and some of this information through its out how they contribute to the SOA narrative commentary. People’s Panel, but does not draw on outcomes. The links are clearer it to report on outcomes. The CPP between the council’s service plans 66. The SMT holds the remit could also draw on the results of and the SOA than in other partners’ to assign tasks to the strategic healthy living initiatives, such as the arrangements. The CPP’s ability partnership delivery groups and to ‘Green Gym’ project, funded through to challenge progress would be scrutinise how the CPP performs. the Fairer Scotland Fund. The CPP strengthened if the SOA outcome The CPP Board is accountable overall will need to balance the number and priorities were incorporated into for implementing the SOA. The scope of its indicators with its efforts partners’ performance management SMT includes representatives from to streamline its SOA. arrangements. the council, NHS, police and the Irvine Bay Regeneration Company. 69. In other cases, outcomes are 73. The CPP recognises that it Further representatives may join as supported with several performance needs to strengthen performance appropriate. This is a sufficiently small indicators, but these do not always management, particularly its delivery group to operate effectively, with the give a clear picture of performance. of outcomes. In March 2012, it potential to act as a management For example, the ‘North Ayrshire established a new group – the board to challenge progress. is a more attractive place to do Research, Information, Performance business’ outcome is supported by and Evaluation (RIPE) Group, chaired 67. Despite the CPP having reporting indicators on new, surviving and failed by the health board’s Assistant mechanisms in place, we found businesses. But the overall picture of Director of Policy and Planning. that overall scrutiny and challenge business growth remains unclear, and It supports the work of the CPP was limited. Our review of CPP no links are made with other factors through developing and challenging Board and SMT minutes found that likely to contribute to making it an performance information, including there is only limited challenge of attractive place to do business, such local data for the neighbourhood performance or requests for follow- as available skills or transport links. planning approach. The aim is to Part 3. Managing performance 19
help the CPP assess local outcomes The CPP uses feedback from issues in more detail. The panel is for specific geographical areas or its People’s Panel to inform its used to gauge overall perceptions of communities. This is a positive priorities, but needs to develop a issues linked to the SOA, but the CPP development and is in line with the more in-depth understanding of recognises that it is not sufficiently Statement of Ambition’s emphasis on local needs representative of local communities. reducing outcome inequalities. 77. The 2003 Act is clear that effective engagement with There are examples of good 74. The CPP indicated that the community bodies is an essential community engagement practice, Scottish Government has provided element of community planning. It and the CPP has established two limited feedback to the CPP on its also makes clear that community groups to further develop its SOA annual reports, or its progress in engagement should improve the engagement with citizens, but delivering improved local outcomes. planning and delivery of services by these groups have made only The Scottish Government also has making them more responsive to limited progress to date representatives, known as location communities’ needs and aspirations. 79. The CPP and individual partners directors, who link with CPPs, The statutory guidance stresses the have shown some good community and have a role in supporting and need for communities to be actively engagement practice: challenging them. The CPP indicated involved as partners in community that it had received advice and planning and for CPPs to work • The CHP’s work to develop care support from its location director on with communities to respond to services for older people, and to the development of the SOA. local concerns and problems. The put in place services for health and Statement of Ambition takes this social care on the islands of Arran The CPP reports activity and further by emphasising the need and Cumbrae (Exhibit 3). performance publicly but the for CPPs to involve communities information provided could be in shaping and delivering better • The Multi-Agency Problem improved outcomes. Solving Group (described later 75. The CPP prepares an annual in the report), established to SOA progress report, which is 78. In North Ayrshire, the People’s address local problem issues in considered by the CPP Board, as well Panel is the CPP’s main means of communities, is a good example as being submitted to the Scottish engaging with communities. This was of the CPP leading on community Government and published on the established in 2000 and comprises engagement practice. CPP’s website. The reports clearly 2,000 residents from communities set out and describe initiatives and across North Ayrshire. Around half • Education Scotland11 inspections actions. They also provide details of are from regeneration areas. The CPP of the council’s community progress on performance indicators also conducts focus groups to explore learning and development and, in the most recent report (2011/12), short- and long-term trend data. However, the reports do not Exhibit 3 include a clear summary of progress Alternative healthcare models on Arran and Cumbrae towards each of the SOA outcomes. This makes it difficult for the reader to The development of new health delivery models on the islands of Arran understand progress against both the and Cumbrae was led by the one of the CHP subgroups, and undertaken outcomes and the overall priorities. by project groups containing a mix of health board and council staff. The work focused strongly on engaging with the community, establishing a 76. The CPP’s dedicated website public reference group. They drew members from representative groups, allows public access to a range of for example, in Arran, from the Arran Elderly Forum and Arran Community information, including SOA annual Council; and held public meetings and stakeholder events. In the Cumbrae reports, CPP meeting minutes, and work, the community had reservations about the new approach and the contextual information about the group decided to take community representatives to see how the approach CPP. While this is a useful source of worked on other islands. information, we found that minutes were often not available for recent This is also a good example of partners looking beyond their own meetings and that accompanying boundaries to draw on learning elsewhere. papers were not included. Source: Audit Scotland
11 Education Scotland was formerly known as HMIE. 20
services, intended to help people 82. The Community Empowerment access training, work or further and Renewal Bill anticipates more education, identified many areas participation by citizens. This includes of very good or excellent practice. their role in identifying solutions These found that the council to local problems, and in taking and its partners provided a wide decisions about investing in services range of high-quality learning or local facilities, or withdrawing opportunities for a diverse range from them. Local commissioning of community organisations, strategies should also take into groups and individual learners. account the role of the community and the third sector. 80. While the CPP has shown good practice in community engagement 83. The neighbourhood planning in specific areas, this is not yet approach aims to tailor services applied or shared across all of its based on a clear understanding of activities. For example, it does not local issues. This will require the yet have a strategy in place to set CPP to involve local communities in out how the CPP will coordinate identifying local issues and deciding consultation activity and share good how best to address them. As part practice. The CPP has recognised of this, it should build on existing this and in 2010 it established two communication channels such as groups to strengthen its practice. interest groups, community councils, One, the community engagement and area committees. The CPP is at reference group (CERG), develops the the early stages in developing a local partnership’s approach to community approach to involving communities. engagement. The second, the At the time of the audit, it had agreed community engagement network to widen the remit of the CERG to group, aims to share good practice develop community engagement and information with partners and and participation as part of its community representatives. Both neighbourhood planning approach. groups draw members from across the community and third sector, and also the council, NHS, police and fire and rescue services.
81. These groups have helped to make communities and the third sector more aware of the CPP’s consultation practice. Part of effective engagement is feeding back to the community. Since 2010 the CPP has hosted an annual ‘community planning week’ to promote community planning activity in various venues through briefings, hosted lunches, and primary school competitions. The council has also provided ‘what you said/what we did’ feedback in its ‘straight talking’ face- to-face consultation events which have included aspects relating to the CPP. However, the CPP has not yet put plans in place to show how it will use community engagement and participation in developing and implementing the SOA priorities. 21 Part 4. Use of resources 22
The CPP has not identified the Exhibit 4 overall resources available to it, or 2011/12 public spending in North Ayrshire how individual partner resources can be aligned to deliver the agreed SOA outcomes 1.1% 0.8% 84. The 2003 Act was clear that DWP, £415.4m 26% effective participation in community North Ayrshire Council, £295.5m planning obliged partners to identify and allocate the resources necessary 42% NHS Ayrshire and Arran, £256.9m to achieve agreed outcomes. More Strathclyde Police, £11.3m recently, the Statement of Ambition expects CPPs to clearly understand Strathclyde Fire and Rescue, £8.1m partner contributions, and how they will target total resources to deliver agreed priorities. The Scottish 30% Government’s response to the Christie Commission report also Note: NHS Ayrshire and Arran spending is net operating costs apportioned based on North highlighted the need for public bodies Ayrshire population. to invest in those responsible for Source: Audit Scotland delivering services.
85. The main community planning 88. Further pressures are likely to contribution of individual partners. partners (North Ayrshire Council, NHS result as the proportion of older There is a risk, therefore, that partners Ayrshire and Arran, Strathclyde Police people increases in relation to the sign up for outcomes, without fully and Strathclyde Fire and Rescue) working age population. A high understanding the resources they have a combined annual budget for proportion of the working age will need to commit. A further gap 2012/13 of over £0.5 billion. The population in North Ayrshire depend could result if they do not assess Department for Work and Pensions on benefits (21.5 per cent compared the available capacity in terms of (DWP) also contributes significantly to 16.5 per cent nationally). The resources and skills, to deliver the to public spending in North Ayrshire, national reform of welfare benefits SOA outcomes and priorities. through processing benefits claims, could therefore have a significant including income support, housing impact. The CPP Board has 91. The CPP has determined that the benefit, council tax benefit and state considered the broad implications of allocation of resources is one of the pension. Total public spending in welfare reform, but has more work to CPP Board’s functions. It can only do North Ayrshire is approaching do to assess the associated resource this effectively if it understands what £1 billion (Exhibit 4). implications. resources are available and required to implement the SOA priorities. The 86. The 2011 Scottish Spending 89. These pressures create a strong CPP needs to take full account of all Review and Draft Budget 2012–13 impetus for CPP partners to identify available money and other resources, estimates that, between 2011/12 opportunities for joint working and including third sector funding. and 2014/15, Scottish Government resource sharing and to develop joint It needs to be wary of double- spending will fall by 5.5 per cent strategies for service redesign. In counting; for example, many third (£1.5 billion) in real terms.12 common with other CPPs, the North sector partners are likely to receive Ayrshire CPP does not yet have an funding from public sector partners. 87. North Ayrshire Council has overview of the resources available to In developing its neighbourhood identified a funding gap of about it or those required to deliver its SOA planning approach, the CPP should £22 million for 2013/14 to 2015/16. priorities; and there is no evidence of identify both what individual partners It is currently considering options individual partners working together are spending, and through which to address this gap. NHS Ayrshire to jointly develop budgets with other organisations that spending is and Arran also faces challenges. To CPP partners. channelled. The CPP should then use achieve continuing financial balance this information to determine what the board will need to deliver £13.1 90. While the CPP has developed scope there is for partners to jointly million of recurring cost savings in action plans to support the delivery plan resource allocations to deliver its 2012/13. of its SOA, these do not specify the SOA outcomes.
12 Scottish Spending Review 2011 and Draft Budget 2012-13, Scottish Government, September 2011. Table 6.02 – Departmental Expenditure Limits, applying the following deflators: 2012/13 = 2.5 per cent; 2013/14 = 2.7 per cent; 2014/15 = 2.7 per cent. Part 4. Use of resources 23
There is evidence of CPP partners There are examples of joint staff, reflecting areas of shared planning and aligning resources appointments across agencies interest, such as health and social in response to specific funding and some joint training, but the care integration. These have included incentives CPP has not yet put in place standards for engaging with clients 92. The CPP has developed a staff development strategy and recording case information. The budgeting processes to manage across sectors linked to its key CPP also hosts training courses on specific government-funded initiatives improvement objectives partnership working and community between partners, and it has joint 95. The Statement of Ambition planning. These have been well commissioning strategies between highlights the importance of attended by partner and service partners for specific client groups, investing in the workforce and representatives across North Ayrshire such as older people’s services. developing the employees involved including council services, NHS However, it does not apply this in community planning. Similarly, Ayrshire and Arran, Strathclyde Police, approach systematically, for other the Scottish Government’s response Strathclyde Fire and Rescue, and CPP activities and initiatives. to the Christie Commission report also the third sector. Work has also identifies workforce development been taking place within the CPP 93. One example of where CPP as one of its four pillars of public Board to raise awareness of the partners have worked together service reform. That document important role that it is expected to to plan and deploy funding is in emphasises the important role of play in responding to the increased care for older people. The Scottish front-line staff in delivering services expectations of community planning Government established its and seeking improvement, and set out in the Statement of Ambition. Reshaping Care for Older People makes a commitment to invest Change Fund in 2011, making in workforce development across 99. There are also examples of joint funding available annually for four public service organisations. It states posts between public sector partners. years, from 2011/12 to 2014/15. It that the Scottish Government will These included: a social worker based is intended to improve services for look to identify and share good with the police to deliver joint partner older people through anticipatory care practice from Community responses; a shared NHS and social and preventative spending. It will also Planning Partnerships. care centre; and the joint police/ support projects in end-of-life training, director of community safety post in intermediate care, and helping people 96. The size of the public sector the council. with dementia. workforce is significant. We estimate that, taken together, North Ayrshire 100. In view of the scale of workforce 94. In each of the first two years, Council, NHS Ayrshire and Arran, and other resources available to the Scottish Government agreed to Strathclyde Police, and Strathclyde partners, these examples of joint provide about £2 million in funding Fire and Rescue employ over 9,000 working and shared employee to North Ayrshire. While the funding full-time equivalent staff in North development are small-scale. is allocated to the health board, the Ayrshire. The scale of resources is The CPP does not yet have a CHP and CPP Board have discussed even greater when other partners deliberate and coordinated approach how to use it, and partners can such as the third sector, the private to leadership and workforce undertake agreed activities, invoicing sector and further and higher development, linked to the CPP’s costs to the health board. Partners education are also considered. strategic priorities. It has not yet set can also contribute additional funding out how staff across agencies will towards activities. For example, the 97. Delivering improved outcomes be provided with the training and council has committed £1.3 million in public services requires strong development needed to allow them additional funding in 2012/13. This is and effective strategic leadership. to contribute effectively to local public an example of the CPP being used as Managers and front-line staff must service improvement. a forum for discussing and allocating also understand the contribution they public money. However, this has been can make in improving local public 101. It is important that the CPP, in in response to an externally driven services, have the skills needed, taking forward its local improvement programme; the challenge for the and be empowered to make change agenda, develops a coherent and joint CPP is how to use this experience to happen at the local level. approach to communicating its key take forward similar joint resourcing priorities to staff, providing them with approaches. 98. We found several examples of appropriate training and development joint training taking place between opportunities and creating a climate partners, in particular between the where staff are able to identify and NHS and the council’s social care deliver local service improvements. 24
Shared asset plans and collaborative procurement are in the early stages of development 102. North Ayrshire Council is developing its corporate asset plans, with an increasing focus on exploring opportunities for sharing assets with partners. The pan-Ayrshire property group involves the three Ayrshire councils and NHS Ayrshire and Arran. The group is analysing how it uses assets across Ayrshire and is piloting an approach to plan its asset use more strategically in the Irvine area. The lead analyst for North Ayrshire’s neighbourhood planning approach is taking part in this exercise, providing a link to the CPP.
103. There are examples where CPP partners have worked together to procure goods and services, but such practice is not yet widespread across the partnership. Projects such as Irvine Town Centre regeneration and the new Irvine leisure centre development, undertaken jointly by North Ayrshire Council and Irvine Bay Regeneration Company, involved significant collaboration on procurement.
104. Partners have noted that differences in national procurement arrangements for sectors can make it more difficult to realise joint procurement opportunities. For example, NHS Ayrshire and Arran uses NHS National Services Scotland for much of its procurement, while the council uses Scotland Excel.13 The CPP highlighted an example of where the health board had empty accommodation that the council wished to use. Owing to differing financial rules, using the accommodation proved to be complicated and the initiative was delayed.
105. The CPP needs to continue to develop how it assesses and makes strategic spending decisions. It needs to explore with the Scottish Government whether any changes in rules and guidance would make it easier to share resources.
13 Scotland Excel is responsible for developing and managing collaborative contracts for products across local government. 25 Part 5. Working together 26
There are many examples of joint police and social work information safety issues, and to step back from working which are focused on systems, coordinating potential activities where existing arrangements improving outcomes and delivering multi-agency responses as part of were working effectively without the better service integration younger people’s services. direct input of the CPP (in the areas of 106. An important emphasis of the housing and the environment). Statement of Ambition is for CPPs • The CHP facilitator, who organises to strengthen joint working between and supports the management 110. The CPP Board should ensure partners. There is also a role for CPPs of the CHP, is a member of NHS that it capitalises on opportunities to promote and share good practice, staff, but is part-funded by the for joint working. This should include for example in local initiatives, council, and is located in the formally evaluating initiatives already preventative services, and council’s offices. under way, to learn lessons and pooling resources. share good practice. Where there 108. Much of the joint working in are examples of successful joint 107. We found many examples North Ayrshire has been in response interventions, such as the Multi- of good partner working in North to specific funding opportunities, or Agency Problem Solving Group Ayrshire, including aspects of has occurred through one or two (described below), the CPP should preventative practice, and services partners identifying opportunities for identify the success factors and sharing staffing and facilities: improvement. While the CPP has not decide how to transfer these to other had a lead role in much of this activity, CPP priority and outcome activities. • The Multi-Agency Problem partners felt that the partnership Solving Group (MAPSG) helped to build good working 111. It is important also that (see paragraph 112) is working to relationships. These allow actions to employees at all levels in partner address local problems such as be taken without the need to seek organisations understand how their crime and antisocial behaviour. the approval of CPP groups. For work contributes to community This involves a wide range of example, the police chief inspector planning priorities. Partners did partners, including police, fire, instigated patrols of new business not provide any evidence that they health and council staff. sites, as a result of concerns raised actively or systematically promoted by the regeneration company, through and encouraged joint working in their • The Multi-Agency Domestic their shared CPP membership. organisation. Abuse Response Team (MADART) However, given the CPP Board’s co-locates partners, and the and SMT’s roles in coordinating The Multi-Agency Problem Solving co-located team undertakes early partnership activity, it is important Group is a strong example of assessments of all reported that they are aware of developments planned, joint working that has incidents of domestic abuse, and assure themselves that they delivered improvements for with the aim of providing a quick, are supporting agreed priorities. The communities effective and proportionate CPP should also explore how lessons 112. One specific example of joint intervention. can be learned from successful joint working that involves community working and be applied to other parts engagement, preventative action, and • Campus police officers, based in of the partnership’s activities. a targeted response from partners schools, work to improve links to improve local outcomes, is the between the police force and The CPP is not systematically MAPSG. The police force has a close communities through learning, considering and disseminating the and constructive working relationship activities and programmes such lessons learned from successful with community safety partners. as the ‘No knives, better lives’ initiatives As noted previously, a senior police campaign. 109. The North Ayrshire CPP has officer is also the council’s director not yet developed a strategic of community safety, and chairs the • Council and health staff are understanding of how joint working Safer North Ayrshire Partnership co-located in a centre providing and other partnership activity (SNAP). He also chairs the MAPSG. addiction support services. By contributes to the SOA outcomes. working in a shared office, health Doing so would enable it to focus 113. The SNAP instigated the and social care professionals can more clearly on meeting any identified MAPSG initiative. The initiative work together more effectively on gaps in what is currently being involves partners identifying areas care planning. provided. As we noted earlier, the for potential joint interventions, CPP has attempted to focus on areas beginning with an analysis of police- • The early and effective where it can add value. Examples related incidents. Partners are then intervention initiative involves a include its decision, following an invited to provide a short summary social worker, located in Saltcoats internal governance review, to focus of their views and knowledge about police station, with access to both on economy, health and community the area and contribute to developing Part 5. Working together 27
a plan for action. The close working Exhibit 5 relationship between the police Example of Multi-Agency Problem Solving Group activity service and its partners, along with the police service’s focus on This joint intervention took place in the Pennyburn area of Kilwinning in performance and action, provides a 2011. Following an intensive first week of enforcement activity by the strong basis for the MAPSG’s work. police, an environmental visual audit, or walkabout, involving police and council representatives, identified environmental issues including vandalism, 114. The action plans are structured fly tipping, dog fouling and poor lighting. This resulted in a local plan for on a phased basis, known locally action, including removing graffiti and litter, and improving street lighting as EPIC (Enforcement, Prevention, and children’s play equipment. A mobile youth centre and a portable soccer Intelligence and Communication). The stadium were also located in the area at weekends during the six weeks of four phases of the EPIC approach are: the intervention. • Phase 1 – weekend of action As part of the plan, Youth Justice Team members targeted youths persistently involved in antisocial behaviour, and prepared long-term • Phase 2 – community intervention and diversionary plans for these individuals. Youth workers engagement, an environmental were also on hand to encourage young people to participate in local visual audit or ‘walkabout,’ and activities. The parents of young people under the influence of alcohol were enforcement contacted, and referrals made to the North Ayrshire Youth Alcohol Scheme. • Phase 3 – diversionary activities In an evaluation report, the local community representative is quoted: • Phase 4 – lifetime management. ‘The action plan at the beginning of the year certainly raised the profile of the multi agencies who were involved. The quick hit approach 115. The Environmental Visual served as a deterrent and went a long way to allowing Pennyburn Audit (EVA) involves partners residents to enjoy a relatively trouble-free summer break for the first walking around the area to identify time in many years. The Environmental Audit proved to be more than environmental and other factors just talk and resulted in noticeable improvements throughout the which may be contributing to estate and its surrounding area. The follow-up in September was very problems in the area. Where possible, welcome; the six-month gap was in my opinion just the right timescale they do this with community and reminded everyone that the partnership approach was not going members or representatives. away.’ Examples include graffiti, rubbish, damaged properties, overgrown The evaluation report also noted that: shrubbery and inadequate lighting. The issues the EVA identifies are ‘Local residents…are reporting a noticeable difference in the attitude managed through action plans that of people who have been causing mayhem in the past. Local people the MAPSG keeps under review. A are also more willing to speak to police officers, councillors, wardens specific example of the MAPSG’s and housing officers…’ approach is in Exhibit 5. Source: Audit Scotland/North Ayrshire Community Planning Partnership 116. The final phase involves lifetime management of the intervention. This involves the group continuing to monitor incident rates in the 118. The intensive activity associated 119. The CPP is aware that MAPSG areas visited, and directing further with these interventions can have interventions can result in further interventions, as necessary. an immediate and noticeable impact potential savings and benefits, but within a community. Sustaining this these are difficult to quantify. For 117. At the time of our audit, the will require continued funding and example, it has noted that its actions MAPSG had performed seven of commitment from partners and in 2010/11 resulted in 60 fewer these interventions. The CPP had community representatives. This victims of serious violent crime. In not attempted to cost the individual poses questions about sustainability, turn, this could have a follow-on interventions, explaining that they particularly given the high initial impact in areas such as: were met from existing resources. investment required – this tension The CPP did indicate that the council reflects the challenges of moving to a • accident and emergency supports the MAPSG through funding preventative approach. admissions to hospitals and five police officers, currently at a cost follow-on appointments of about £163,000. 28
• demand for victim support and 123. Most of the initiatives listed other social services above were in the early stages of development or implementation at • criminal injury claims. the time of our audit. While some projects were more advanced than 120. The CPP should continue to others, there was not yet any robust evaluate the programme to assess evidence of how these activities whether this preventative practice were contributing to the SOA can be sustained and remain effective outcomes. The council committed in the longer term. It should consider additional funding to the broader how the approach can be applied early intervention and prevention more widely, or the success factors programme for 2012/13 and plans to transferred to other areas of activity, do so again in 2013/14. such as health. 124. Validated self-assessment The CPP has developed prevention exercises involving Education and early intervention approaches, Scotland and the council’s education but these are in their early stages and skills services were undertaken in 121. The CPP has emphasised late 2012. These were relevant to the intervention and prevention as part of SOA outcome to support the positive its interim SOA. Partners were clear development of vulnerable young that this was a significant element children. The assessments were of the CPP’s work. The SOA also very positive and found that partners’ includes outcomes and indicators early years services had an effective relating to children and young people, focus on prevention, including joint focusing in particular on children who working with NHS, social services have been identified as vulnerable. and education and skills, along with a shared nurturing vision to support 122. Evidence of early intervention children and families. and prevention is most apparent in the CHP. The CHP has a specific subgroup with responsibility for Integrated Children’s Services. The CHP minutes recorded regular discussion of early years prevention and intervention, including the development of an Early Years Prevention and Early Intervention Action Plan for 2012–15, the main elements of which are:
• Parenting programmes
• Early Years Centres
• Family Support Service
• Multi-Agency Domestic Abuse Response Team (MADART)
• Permanent Care for Children
• Family Nurse Partnership
• Asset Based Community Development (ABCD) Project. 29 Part 6. Impact and outcomes 30
The CPP reports improved indicators. The CPP notes progress in Ayrshire CPP recognises the disparities performance in some areas, such some areas, but other areas are not in outcomes and levels of deprivation as skills development and aspects clearly defined or reported against, or between areas within North Ayrshire. of community safety, but it is not current data is not available. As a result, able to provide a clear assessment it is difficult to judge clearly the CPP’s 127. The outcome gap in North of progress towards its SOA progress towards its SOA outcomes. Ayrshire has not changed significantly outcomes, and significant gaps in the last ten years, particularly remain between the least and most 126. The Statement of Ambition for health and the economy deprived areas in North Ayrshire emphasises the role of CPPs in (Exhibit 6). The economy and 125. As we explained earlier, North reducing the outcome gaps between education indicators show a more Ayrshire CPP’s annual performance the most and least deprived positive position, with three of the reports do not clearly report communities. Across Scotland, there is five selected indicators showing performance against outcomes. a marked disparity between the most a narrowing of the outcome gap. Rather, the reports focus on individual and least deprived areas. The North North Ayrshire broadly reflects the
Exhibit 6 The gap between the most and least deprived areas – outcome trends over the ten-year period from 2002 to 20111 Economy and Education Scotland North Ayrshire
• S5 – average tariff score • Percentage of school leavers in sustained positive destinations
• S4 – average tariff scores • Percentage of working age people claiming key benefits
• S6 – average tariff scores
Health Scotland North Ayrshire
• Hospital admissions for coronary heart disease – rate per 100,000 • Low weight live singleton births as a percentage of all live singleton births2
• Percentage of children exclusively breastfed at the 6-8 week review • Smoking in pregnancy – percentage of women smoking at booking
• Female life expectancy
• Male life expectancy • Emergency hospital admission rate per 100,000 • Emergency hospital admission, 65 years and over: rate per 100,000
Narrowing gap Unchanged Widening gap
Notes: 1. Based on data covering the last ten years to compare the average outcome results for the 20 per cent most and least deprived data zones. 2. Very slight reduction for Scotland. Source: Audit Scotland, 2012 Part 6. Impact and outcomes 31
national picture but is lagging behind • Levels of educational attainment • There has been an improving Scotland as a whole in areas such as and achievement have improved. trend of employment skills clients benefits dependency and the care of moving into work, education or infants. Only one area, women’s life • North Ayrshire has more of an training, rising from 553 in 2008/09 expectancy, is stable compared to a enterprise culture. to 1,169 in 2011/12. Exhibit 7 widening gap nationally (although it is (overleaf) provides details of one among the worst in Scotland). • Community capacity has such scheme. improved. 128. The CPP recognises that the • Educational attainment is an causes of negative outcomes are • More young people are leaving important aspect of employability, often complex and interrelated. The schools for positive destinations. and the CPP monitors this SOA states, for example, that health as part of its ‘working North inequality is strongly linked to income, • Transport links to and from North Ayrshire’ priority. North Ayrshire employment and early experiences Ayrshire have improved. is, and historically has been, for children. However, it is not clear below the Scottish average, but how the CPP makes these links • North Ayrshire is a more attractive 2011 figures show a continuing across its activities. The SMT is a tourist destination. upward trend. Attainment at good forum to make connections SCQF level 3, which is equivalent between the three strategic 131. In 2011-12 the CPP reported to Access 3 or Standard Grade partnership groups but, to date, positive progress with most of at foundation level, was above it has focused more on individual its indicators. Twenty-one (60 per national and comparator averages initiatives, rather than planning joint cent) of its 35 indicators met target, in 2011. Education Scotland interventions across the groups. and nine indicators (26 per cent) school inspections also indicate were slightly adrift of target. Two strong practice at early years and 129. The following sections provide an important areas were significantly primary stages. The percentage overview of progress against the three adrift of target: the percentage of pupils going on to higher and partnership priorities for the economy, of the working age population in further education is higher than health and community safety. These employment; and the number comparator authorities, but in line are based both on the CPP’s own of businesses per working age with the national average, at 36 reporting of performance indicators population. Three indicators do not per cent for 2011. and progress, and on nationally have associated targets. available performance information. • The percentage of school leavers 132. Irvine Bay Regeneration moving into employment, ‘A working North Ayrshire’ Company was established in education or training has increased October 2006. It was set up by North from 85 per cent in 2009 to The CPP reports broadly positive Ayrshire Council, Scottish Enterprise 90 per cent in 2011, which is in progress against its SOA indicators, and the Scottish Government, line with the Scottish average. In though business growth and working with the private sector. It North Ayrshire a larger proportion employment are significantly adrift also receives funding from other of these move into higher or further of target public sector bodies, and attracts education (69 per cent compared 130. The ‘working North Ayrshire’ additional investments from private to 63 per cent nationally); and SOA priority sets out the CPP’s vision sector companies. It focuses on fewer into employment (16 per for the economy. This draws on the physically regenerating the Irvine cent compared to 20 per cent CPP’s economic profile for North Bay area, including Irvine, Kilwinning, nationally). Education Scotland has Ayrshire, recognising its position Ardrossan, Saltcoats and Stevenston. identified good practice from the of ‘acute disadvantage’ compared council and its partners in helping to Scotland as a whole. The 2012- 133. North Ayrshire’s economic vulnerable youths into education 13 interim SOA sets out the CPP’s partners have reported good progress and employment. economic outcomes as follows: with employment skills training. Progress in business growth, • Economic partners, including • More people are in work or including inward investment and the council, Scottish Enterprise, training. promoting a culture of enterprise, is and the Irvine Bay Regeneration less apparent. The following points Company, have successfully • North Ayrshire is a more attractive highlight areas of progress on the lobbied for Enterprise Area status place to do business. ‘working North Ayrshire’ priority, and for areas within North Ayrshire. include further national performance This will provide incentives for • Fewer people are living in poverty. information where relevant: life science related business, and will allow tax incentives through 32
Exhibit 7 capital allowances to all businesses. Partners are also investigating The North Ayrshire Youth Employment Support programme sources of funding to tackle deprivation in the Irvine Bay area, The CPP established the North Ayrshire Youth Employment Support and have secured almost £1 million programme (YES) in October 2011. This was in response to increasing pounds of employability funding. youth unemployment and feedback from employers that previous programmes to encourage employers to recruit from the unemployment • Business Gateway has maintained market were not working. its support for business start-ups. It has supported approximately The scheme is funded by the council and combines pre-employment 278 new businesses each year. training with a subsidised job opportunity. In addition to providing Historically, North Ayrshire has opportunities for unemployed young people (aged 16–24), the initiative is lagged behind the rest of Scotland, designed to support business growth for local employers. and indeed the other Ayrshire council areas, in business growth, The programme is delivered by the council’s economic development of which VAT/PAYE registrations is service, Jobcentre Plus, Skills Development Scotland and third sector an indicator (Exhibit 8). employability providers, and consists of the following: • The Irvine Bay Regeneration • The Support and Training Results in Valuable Employees (STRIVE) Company undertakes a range programme ensures clients have the core skills to make the transition of environmental improvements into work. This simulates a workplace and focuses on skills such as and business infrastructure communication, teamwork and following instructions. development. It has undertaken a range of projects in Irvine, • Pre-vocational support, as defined by employers, ensures clients Kilwinning, Ardrossan, Stevenston, have the right jobs skills before starting employment. Examples are and Saltcoats including marina food hygiene qualifications, first aid training, and a construction skills and business site development. certificate scheme. Up to £350 per person is available to support this Following improvements to training. Kilwinning High Street, new types of retailers have moved into the • Six months of supported employment covering 75 per cent of wage area. Funding has been secured costs, based on the rate for the job (up to £7.11 per hour). The contract from the Scottish Government of employment is with the employer and the young person is treated as for the A737 bypass to improve a full member of staff. access to North Ayrshire. The programme has shown success in its first year of operation in ensuring • Tourism visitor numbers fell in previously unemployed young people are moving into work. The scheme 2011/12, but visitor spending currently involves 57 employers. Partners attribute its success to the good increased. The Ayrshire Economic working relationships between the organisations providing the support. Partnership (see paragraph 138) has developed an Ayrshire-wide Beneficiaries on to STRIVE programme: 177 tourism strategy to develop tourism Completing STRIVE programme: 156 (88 per cent) and help businesses to grow. Beneficiaries into work placements: 128 (72 per cent) 134. Despite the partnership’s efforts, the overall economic situation in North To date 25 have completed their placements, and of these 20 found positive Ayrshire has continued to decline outcomes through work or apprenticeships. and is worsening in comparison to Source: North Ayrshire Council and Audit Scotland neighbouring local authority areas. Our own assessment shows that North Ayrshire performs relatively poorly across many economic indicators, and is often in the worst performing quartile of council areas. Indicators include the employment rate, job density and the numbers of VAT registrations. The number of new businesses per working age population has declined in North Part 6. Impact and outcomes 33
Ayrshire, and at 36.5 per 10,000 in Exhibit 8 2011/12, is well below the national VAT/PAYE registrations per 10,000 adults average of 44. Areas of slightly better performance include business survival 50 Upper quartile rates, median earnings and the average dependency ratio: the ratio of people 45 Lower quartile of working age who are not in work to average those in work. Exhibit 9 illustrates the 40 North Ayrshire declining employment rate in North Ayrshire. Business growth and jobs 35 growth therefore remain Percentage 30 significant challenges.
25 The CPP has involved the private sector more directly, but needs 20 to increase efforts to deliver 2002 2003 2004 2005 2006 2007 2008 2009 2010 improvements Year 135. The Economic and Learning Source: Office for National Statistics Partnership (ELP) was the main CPP body responsible for the ‘working North Ayrshire’ priority when the SOA began in 2009. The ELP Exhibit 9 was primarily a council-led body Employment rate but included a range of economic partners. The CPP recognised that 80 Upper quartile while the ELP had made good 78 average progress with employment skills, 76 Scotland it did not focus strongly on wider 74 economic growth. Lower quartile 72 average North Ayrshire 136. In response to this, the CPP 70 created a new body, the Economic Percentage 68 Development and Regeneration 66 Board (EDRB), and, in September 64 2012, it formally incorporated this 62 into the CPP structure to take 60 forward its 2010–20 strategy for 2004 2005 2006 2007 2008 2009 2010 2011 economic growth. The EDRB has Year brought greater business focus Source: Office for National Statistics and representation to the CPP’s economic activity. It is chaired by a representative from the University of Glasgow with expertise in economic for achieving stronger business Ayrshire local authorities, Scottish development, and includes Scottish growth. However, it is still deciding Enterprise, and Ayrshire Chamber of Enterprise, Skills Development its strategic approach. In view of the Commerce & Industry in 2008/09. Its Scotland and the Department for worsening economic situation, it is aim is to benefit Ayrshire’s economic Work and Pensions, as well as important that the ERDB and CPP development in areas such as tourism elected members, college and private quickly agree a plan of action. and renewables. sector representatives. The EDRB is taking forward specific strands of 138. The CPP should ensure that 139. It is important that the review work on business start-ups, it develops appropriate links at a partnership increases its pace of inward investment and growth, and regional, national and international change and scrutinises progress place marketing, each led by a private level as part of its plan to promote of the EDRB’s emerging plans for sector representative. the area and optimise growth. For business growth. This is particularly example, the respective roles of the important if it is to deliver its 137. The CPP has taken positive EDRB and the Ayrshire Economic ambitious targets to close the gap steps to re-focus its activities and Partnership (AEP) are not yet clear. between North Ayrshire’s economy the EDRB provides a good basis The AEP was created by the three and that of Scotland as a whole. 34
‘A healthy and active North • aspects of child protection • Integrated Children’s Services Plan Ayrshire’ and Action Plan 2010/15. • attendance at pools The CPP has not yet developed • NHS Ayrshire and Arran Maternity effective performance indicators • attendance at leisure facilities. Strategy 2010/15. for health, making it difficult to measure progress against its Areas significantly adrift of target were: 145. Our report on Health inequalities ‘healthy and active’ outcomes in Scotland highlighted the lead role 140. The ‘healthy and active’ outcomes • perceptions of health within that CPPs have in bringing together in the 2012/13 interim SOA are: regeneration areas all relevant local organisations to address health inequalities. The report • Health inequalities have reduced. • numbers assessed for alcohol concludes that current performance and drugs misuse, which the measures do not provide a clear • Health and wellbeing throughout CPP attributes to a change in picture of progress and that CPPs’ life have improved. classification and the initial impact reports on delivering their SOAs of relocating a treatment centre are weak in the quality and range • Opportunities to support the of evidence used to track progress positive development of vulnerable • numbers of substance misusers in reducing health inequalities. It young children have increased. accessing treatment, which highlights that differences among the CPP attributes to normal SOAs make it hard to identify a • The harmful effects of alcohol and fluctuation and a review of cases. Scotland-wide picture. The report drug misuse are reduced. recommends that CPPs ensure 143. Mental health and wellbeing partners have a shared understanding • More vulnerable people are for people in regeneration areas was of health inequalities, their respective supported within their own slightly adrift of target. roles and the shared resources communities. available, and that they involve local Health outcomes for the people of communities in initiatives to tackle • People are more active more North Ayrshire remain poor, in both health inequalities. often. comparative and absolute terms 144. The CHP is the CPP strategic 146. In North Ayrshire, the SOA • More children and young people group with primary responsibility indicators include a limited number live in a safe and supportive for the SOA health outcomes. It of health and wellbeing measures environment. has established two subgroups from regeneration areas. However, with a specific focus on distinct the progress reports do not indicate 141. Many of these outcomes are groups who use services. These the extent to which the gap between fairly broad in nature, and could be subgroups are the Officer Locality these areas and less deprived areas open to quite wide interpretation. Group for Adult Services and the is narrowing. Additionally, the SOA sets targets for Officer Locality Group for Integrated only nine of the 25 indicators which Children’s Services. A third subgroup, 147. The SOA emphasises challenges support the outcomes. As a result, the Alcohol and Drugs Partnership, in reducing health inequalities, it is very difficult to gain a real sense focuses on one of the CPP’s health including the 15-year gap in life of what progress is being made outcomes. These subgroups have expectancy between men living in towards the achievement of the lead responsibility for taking forward the least and most deprived areas outcomes. aspects of the health priority, and of North Ayrshire; it also notes reporting progress to the CHP. At challenges in health and wellbeing 142. The SOA progress report for August 2012, the CHP was also due to alcohol and drugs misuse, 2011/12 notes that the target was monitoring four distinct strategies and smoking, obesity and promoting met for only five of the nine indicators action plans: good mental health. The SOA states with targets. These are in the areas of: an ambition to improve life chances • Early Years Prevention and Early through an early intervention and • perceptions of health outside Intervention Action Plan 2012/15. prevention programme, including regeneration areas parenting programmes, family nurse • Parenting and Family Support partnerships and family support. • mental health wellbeing scores Strategy and Action Plan 2010/15. Part 6. Impact and outcomes 35
148. The CPP reports a range of • The CPP’s 2012 SOA report notes • Levels of crime and antisocial initiatives that are under way to help that mental health and wellbeing behaviour have reduced and achieve these aims. But it does not scores are improving in non- crimes being detected have report the impact of these on the regeneration areas, but declining increased. SOA outcomes. Our own analysis within regeneration areas. of publicly available data indicates • Fear of crime and antisocial that, overall, North Ayrshire’s health ‘A safe and secure North Ayrshire’ behaviour has reduced. outcomes compare poorly with the worst performing quartile in The CPP reports good progress for • The harmful effects of alcohol and Scotland. North Ayrshire also has most indicators under its ‘safe and drug misuse are reduced. poorer outcomes than both East and secure North Ayrshire’ priority South Ayrshire in alcohol abuse and 149. The ‘safe and secure North • Road safety has improved. childhood obesity. Trends in specific Ayrshire’ outcomes in the 2012/13 areas are as follows: interim SOA are as follows: • Fire safety has improved.
• Life expectancy for men and women is lower than the national average – both are ranked as Exhibit 10 25th in Scotland. The most recent Mortality rates per 100,000 for people aged under 75 in Scotland information available suggests that for men, life expectancy is 75 450 North Ayrshire (compared to a Scottish average Lower quartile of 75.8) while for women, it is average 79.5 (compared to 80.4 nationally) 400 There is significant local variation. Scotland The mortality rate for people aged Upper quartile 350 75 and under declined steadily average between 2006 and 2010, but rose again in 2011 (Exhibit 10). 300
• Alcohol-related hospital admissions are consistently poorer than 250 2006 2007 2008 2009 2010 2011 the worst performing quartile in Year Scotland and, overall, performance worsened between 2005 and Source: National Records of Scotland 2010. Although there has been some improvement in the number of cases of reported drug misuse, North Ayrshire is close to the worst performing quartile. Exhibit 11 Percentage of Primary 1 children who are overweight • Though there was a spike in 2007, 30 smoking rates remained broadly North Ayrshire the same between 2003 and Lower quartile 2009, and close to the Scottish 27 average average. The rate was 24 per cent Upper quartile in 2009, which was similar to that 24 average of South Ayrshire, and better than East Ayrshire. 21
• The percentage of overweight Primary 1 children is significantly 18 worse than the Scottish average and the other Ayrshire council 15 2007 2008 2009 2010 areas (Exhibit 11). Year Source: Information Services Division, NHS National Services Scotland 36
150. As we noted previously, the • Recorded crime has moved • Drug crimes have decreased since Safer North Ayrshire Partnership towards the worst performing a peak in 2005, at a faster rate plays a lead role in advancing this quartile in Scotland (Exhibit 12). than the Scottish average, but priority and associated outcomes. Domestic housebreaking rates have increased slightly since 2010 This includes considering quarterly have been generally worse than (Exhibit 13). performance reports on the indicators the worst performing quartile in and actions in the SOA. Scotland since 2008 (and are worse • Reported incidents of domestic than in East and South Ayrshire). abuse have increased steadily 151. The SOA notes particular Drunkenness offences more than since 2002. The CPP suggests challenges in the levels of violent halved between 2002 and 2011. that this indicates increased crime (which remain higher than the Scottish average), domestic abuse, and local disparities in crime rates, which in some cases are nine Exhibit 12 Rate of recorded crimes and offences per 10,000 population times higher in the most deprived – North Ayrshire compared to the least deprived areas.
2,500 Lower quartile 152. Of the 20 indicators under the average ‘safe and secure North Ayrshire’ 2,000 Scotland priority in the 2009–12 SOA, 15 have associated targets. The SOA North Ayrshire 1,500 2011/12 progress report indicated Upper quartile that targets are being met for 13 average of these. This includes perceptions 1,000 of neighbourhood safety, levels of violent crime, detections for 500 drug supply, antisocial behaviour complaints, and reduced roads and 0 fire casualties. One target – common 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 assault offences – was slightly adrift. Year The remaining indicator, for publicly Source: Scottish Government reported incidents of youth disorder, was classified as significantly adrift. This indicator had seen a significant improvement over the preceding three years, from 453 (per 10,000 Exhibit 13 population) in 2007/08, to 122 in Number of drugs crimes recorded by the police per 10,000 population 2010/11; the figure for 2011/12 was – North Ayrshire 134. The partnership stated that this recent dip in performance had led to a 120 Lower quartile Multi-Agency Problem Solving Group average response, as described earlier in this 100 Scotland report, and that there had been an improvement in performance in this 80 North Ayrshire area since the last annual report. Upper quartile 60 average Our own analysis of available statistics suggests mixed 40 performance on wider indicators 20 153. While the partnership reports
that it is meeting most of its own 0 targets, our assessment of data 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 shows a more mixed picture when Year compared to Scotland as a whole: Source: Scottish Government Part 6. Impact and outcomes 37
confidence in reporting this crime Exhibit 14 (Exhibit 14). Rates per 100,000 population of domestic abuse incidents recorded by the police – North Ayrshire • Road accidents, measured in terms of deaths and serious 1,400 North Ayrshire injuries, are relatively low; they 1,200 Upper quartile are near or around the top average performing quartile in Scotland, 1,000 Scotland as Exhibit 15 shows. Incidents of fire and fire-related casualties 800 Lower quartile average and deaths have decreased 600 significantly since 2006/07. 400
200
0 2002 2003 2004 2005 2006 2007 2008 2009 Year
Source: Scottish Government
Exhibit 15 Number of persons killed or seriously injured in road accidents – North Ayrshire
160 Lower quartile average 140 North Ayrshire 120 Upper quartile 100 average
80
60
40
20
0 2003 2004 2005 2006 2007 2008 2009 2010 2011 Year
Source: Transport Scotland 38 Part 7. Improvement agenda Part 7. Improvement agenda 39
154. Continuous improvement the fundamental structures and Performance management and use in public services and strong processes in place, but must now of resources local leadership and governance take this further, to build on existing are central elements of the joint good practice and demonstrate clearly • The CPP should use the work Scottish Government and COSLA how it is improving outcomes for its of its strategic groups and Statement of Ambition for community communities. its RIPE Group to inform its planning. That document and the consideration of performance Scottish Government’s priorities for 157. The audit has identified a reports. CPP performance public service reform, developed in number of areas where the CPP can reports should include an response to the Christie Commission improve. These are set out below. overall indication of progress report, share common themes: towards each SOA outcome. Strategic direction • A decisive shift towards • The CPP Board, SMT and prevention. • The CPP should improve the strategic groups should outcomes used to measure challenge under-performance • Greater integration of public progress against its healthy and and specify the actions required services at local level, driven active priority, and set targets to deliver improvement. by better partnership, greater for the associated indicators. collaboration and effective local • The CPP should build on delivery. • The CPP Board should provide existing good community strong direction over the engagement practice, to gain • Greater investment in the people transition to single police and fire a better understanding of who deliver services through services for Scotland, and the local issues. It should increase enhanced workforce development arrangements for the integration community involvement and and effective leadership. of health and social care. participation in determining and delivering the SOA outcomes. • A sharp focus on improving Governance and accountability performance. • The CPP should clarify the • To improve the CPP’s focus on role, contribution, and impact 155. This is a stretching and delivery and accountability, it expected of its two community demanding agenda. Public sector should set out clear actions to engagement groups, leaders will need to provide strong support each SOA outcome, including their contribution to and sustained leadership to deliver specifying the lead partner(s), neighbourhood planning. the ambitious step change in the respective resource inputs, performance required to respond to: and the indicators to be used to • The CPP should identify the measure progress. total resources available to all • the financial pressures facing partners; and determine how public services • To strengthen ownership and resources can be targeted accountability, each partner and aligned towards agreed • rising demand owing to should reference their SOA SOA outcomes. The CPP’s demographic change and public responsibilities within their own Neighbourhood Planning expectations strategic plans, including how Approach should provide a they will contribute to SOA good basis for doing this. • deep-rooted social problems that outcomes. affect many parts of Scotland.
156. North Ayrshire CPP is self- aware, having subjected itself to both internal and external review. Partners are committed to improvement, and the CPP has set itself a demanding improvement agenda. The CPP has 40
Impact and outcomes
• The CPP should identify the success factors in joint working initiatives, such as the Multi- Agency Problem Solving Group, and, where appropriate, apply these to wider CPP activities.
• CPP partners should encourage their employees to identify joint working opportunities, with a particular focus on improving outcomes for service users and the wider community.
• The Neighbourhood Planning Approach is a positive and ambitious development. The CPP Board should review progress at each meeting, and all partners should contribute to its development and implementation.
• The CPP should determine how it can overcome problems and/ or build upon the success of its approaches to early intervention and prevention.
• The CPP should increase the pace of change in its economy activities, and develop and implement its plans for business growth in a worsening economic climate. This should include working with regional and national partners/ programmes. Community planning in North Ayrshire
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