SOCIAL WORK COMMITTEE
THURSDAY, 12 NOVEMBER, 1998
NOTICE IS HEREBY GIVEN that a meeting of the SOCIAL WORK COMMITTEE will be held within the Council Chambers, Council Headquarters, High Street, Elgin on Thursday, 12 November, 1998 at 10 a.m.
Alistair Keddie 5 November, 1998 Depute Chief Executive (Finance & IT)
BUSINESS
1. Consider, and if so decide, adopt the following resolution:-
“That under Section 50A(4) and (5) of the Local Government (Scotland) Act 1973, as amended, the public and media representatives be excluded from the meeting for Items 9 and 10 inclusive of business on the grounds that they involve the likely disclosure of exempt information as defined in the appropriate paragraphs of Part 1 of Schedule 7A of the Act. ”
2. SWSI Report: “Women Offenders - A Safer Way” - Report by Director of Community Services
3. Consultation Paper: “Community Sentencing - The Tough Option” - Report by Director of Community Services
4. SWSI Report: “Sensing Progress” - Social Work Services for People with a Sensory Impairment - Report by Director of Community Services (TO FOLLOW) 5. Scottish Community Care Forum National Conference - Positive Action - Positive Change - Report by Director of Community Services
6. Community Services Department Key Service Plan 1999/2000 - Report by Director of Community Services
7. Project Development & Funding Sources: Services to People with Learning Disabilities - Report by Director of Community Services
8. Bid to the Scottish Offrce for Rough Sleeper Initiative Funding and Bid to European Social Fund for Funding for Training for Rough Sleepers - Report by Director of Community Services
Items which the Committee may wish to consider with the Press and Public excluded
9. Future Use of Winchester House, King Street, Elgin - Report by Director of Communty Services (Paras. 8 & 9)
10. Complaints Review Committee Case No. 3/98 - Report by Legal and Administration Services Manager (Para. 3)
NE3 Paragraph 3 - Information relating to any particular applicant for, or recipient or former recipent of, any service provided by the Authority Paragraphs 8 and 9 - Information on proposed terms and/or expenditure to be incurred by the Authority
ICONTACT PERSON: 1 Rachel Wilson -1 TEL. NO: 01343 563079 ROOM NO: 207a SOCIAL WORK COMMITTEE
SEDERUNT
COUNCILLO R J. Stewart, Chairman C.OUNCILLO 3 R.L. Patterson, Vice-Chair-mIan COUNCILLO 2 D. Crawford COUNCILLO 3 H.M. Cumiskie coUNcILLo 3 M.C. Howe COUNCILLO 3 A. Keith coUNcILLo 3 W. Jappy COUNCILLO 2 P. Mann COUNCILLO X G. McDonald coUNcILLo X H. McDonald coUNcILLo 3 J.M. Shaw
CLERK TO THE COMMITTEE - MISS R. WILSON Tel. 01343 563079 Room No. 207a
ITEM: 2 PAGE: 1
REPORT TO: SOCIAL WORK COMMITTEE ON 12 NOVEMBER 1998
SUBJECT: SWSI REPORT: “WOMEN OFFENDERS - A SAFER WAY”
BY: DIRECTOR OF COMMUNITY SERVICES
1. Reason for ReDort
1.1 The purpose of this report is to inform the Committee of The Moray Council Criminal Justice Social Work Service’s response to the SWSI Report “Women Offenders - A Safer Way” (a Review of Community Disposals and the use of Custody for Women Offenders in Scotland).
2. Backmound
2.1 On 13 May 1998, the Scottish Office published the Report “Women Offenders - A Safer Way”. On the same day, a letter was sent to all local authorities by the Scottish Office requesting comments in relation to the findings or recommendations in the Report by the end of August 1998. That letter together with a copy of the Report “Women Offenders - A Safer Way” and a copy of the Government’s Response have been lodged in the Members Library.
2.2 Also on 13 May 1998, a further letter was sent to all local authorities referring to Recommendation 4 in the Report. In accordance with that Recommendation, all Authorities were requested to “review their arrangements to ensure that Criminal Justice Social Work Services are tailored to work with women offenders, and should report the outcome of their reviews to the SWSI by the end of November 1998”. A copy of that letter dated 13 May 1998 is included as APPENDIX 1 to this present Report. ITEM: d PAGE: 2
3. The Proposals
3.1 An initial response from The Moray Council Criminal Justice Social Work Service to the SWSI Report, was sent to the Scottish Office on 19 August 1998. This included some brief comments on the SWSI Report. It also indicated that a Working Group was being established in Moray to look at the Report in detail and to prepare the Review of existing services. A copy of that response is included with this Report as APPENDIX 2.
3.2 The Working Group was formed within the Social Work Division of the Community Services Department and this Group was chaired by Alan Willis, Social Worker Manager (Criminal Justice Services). The Group comprised Social Work representation from Criminal Justice Social Work; Area Teams (generic) Social Work; Social Work Addictions Service; Hospital based Mental Health Social Work. In addition, consultation was arranged with outside agencies, as indicated later in this Report.
3.3 On completion of its work, the Working Group has produced the Review of Criminal Justice Social Work Services provided to women offenders by The Moray Council, as requested by the Scottish Office. This Review is included with this Report as APPENDIX 3.
3.4 A corporate response to the SWSI Report has been submitted by the Association of Directors of Social Work (Standing Committee on Criminal Justice) and a copy of that response is included with this Report as APPENDIX 4. The Moray Council Criminal Justice Social Work Service agrees with the comments contained in the ADSW response.
4. Staffme Implications
4.1 There are no staffing implications associated with this Report.
5. Financial Implications
5.1 There are no financial implications associated with this Report.
6. Environmental Implications
6.1 There are no environmental implications associated with this Report. ITEM: 2 PAGE: 3
7. Consultation
7.1 In preparing this Report, consultation has taken place: within the Working Group and thereby, throughout the Social Work Division of the Community Services Department; with Sheriff Noel McPartlin (Elgin Sheriff Court); Procurator Fiscal Depute (Elgin Sheriff Court); Sheriff Clerk (Elgin Sheriff Court); Carol Watterson (Senior Employment Counsellor, Apex Scotland); Bob Barr and Helen Graham Social Work Unit HM Prison Porterfield Inverness. Statistical information has been provided by the Information & Research Officer in Aberdeen City (from where The Moray Council currently purchases information and research services for Criminal Justice Social Work). All those consulted are in agreement with the contents of the Review and this Report.
8. Recommendations
It is recommended that the Social Work Committee:
(i) Note the contents of tbis Report. Note the contents of the Review of Criminal Justice Social Work Services provided to women offenders by The Moray Council.
Author of Report: Alan Willis, Social Work Manager (Criminal Justice Services)
Background Papers: National Objectives and Standards for Social Work in the Criminal Justice System and Revisions; SWSI Report: “Women Offenders - A Safer Way”; Government’s Response to the SWSI Report.
Ref: ALANWXJSREPOR
Signature: . . . .s...... &...... 45IYL--......
Name: David Sullivan
Designation: Chief Social Work Officer
APPENDIX 1
THE SCOTTISH OFFICE
Social Work Services lnspecrorate lames Craig LVdk Edinburgh EH I 38/i
TelephoneOl31-244 541-1 Fax 0 I3 I-244 5496
To all Directors of Social Work/Chief Social Work Officers
13 May 1998
Dear Colleague WO&lEiU OFFENDERS - A SAFER WAY: A REVIEW OF CO~lXLNITY DISPOSALS AND THE I_iSE OF CUSTODY FOR WO&lEN OFFENDERS I?% SCOTLAND
_’ I refer to the above repon and the Government’s response, both of which v;ere p~lblished t&a:; and have been issued to locai authorities and other key interests. The report concludes that women’s offending and women offenders’ needs are often different to those of mzn: thzt better information is necessary to maximise opportunities for dealin? with women oZ’~n~e:s at the earliest points in the criminal justice process, and that existing programmes linked CO community sentences may not always be suitable for vvomen.
Recommendation 4 of the report states that:
“All local authorities should review their arrangements to ensure that criminal justice social work services are tailored to work with women offenders: and should report the outcome of their reviews to the SWSI by the end of Xotember 1998.”
I am writing: therefore, to ask you to take forward this recommendation b>, revieL::in: arrangements within vour authoritv for the provisionI of criminal justice SOCKS vvork services !p_ l?lntinn_ __-_____ ‘c)_ l,‘,‘s~~~AA gf:‘t&r;. [&ing &tie a-c:ouni of the issues seL ZuL in para$2phs 1 i z.T,u’ 12 of the Recommendations contained in Chapter 6 of the report.
I ivould be grateful if you l.vould provide a renon to me: bv 30 sovember 1998, indicating th2 outcome of your review ad ways in \vhich you might maxi&c the impact of existing resources, including those located elsewhere Lvithin the local authoritv.. ln narticular 1 Lvouid be grateful for you to hi,ohlight any plans for early future action. We vvill make the results of the review publicly available and will ensure that particularly innovative approaches are disseminate to ail authorities.
Yours sincerely
ChiefSo$aI Work Inspector I/ CZK%ify Services David Sullivan Chief
Criminal Justice Set-vices
Springlield House Edgar Road Elgin IV30 3FF
Contact: Alan Willis Tel: (01343) 557049
Ref AWIJJP
19 August 199s
Mr Angus Skinner Chief Social Work Inspector The Scottish Office Social Work Services Inspectorate James Craig Walk Edinburgh EHl3BA
Dear Mr Skinner
WOiMEN OFFENDERS - A SAFER WAY
Thank you for your letter dated 13 May 1998 and also for enclosing copies of this report which have been distributed throughout this Department. I am also ,oratefi_rl for your further letter of the same date requesting a review of Criminal Justice Social Work Services in relation to Women Offenders. As you request a response to the findings and/or recommendations in the Report, I would make the followinS comments.
1. The Moray Council Criminal Justice Social Work Service welcomes this Report, particularly as there has been little published research in relation to the particular needs of Women Offenders. Recommendation 4 in the Report seems to be particularly appropriate. The Moray Council has in fact set up a Working Group comprising representatives from a variety of Social Work specialisms. This Group will also be meeting with various outside agencies and representatives of the Criminal Justice system in Moray.
3_. We are aware that the main impetus for this Report comes from the tragic spate of suicides at HM Prison Cornton Vale over the past year or so. There is no custodial establishment in bIoray, but all remand prisoners and those serving comparatively short term sentences, (including Women Offenders), remain at H&l Prison Porter-field Inverness. The Workin,o Group will be meeting with representatives fi-om HM Prison Porter-field in the course of preparing the Review.
3 The actual number of Women Offenders dealt with by the Criminal Justice Social Work Service in Moray is comparatively small. Even so, this is not to say that the services we deliver to Women Offenders are in any way less important than those delivered to male offenders.
A Division of Community Services. Mike Martin, Oirector The Moray Councd. Council Office, High Street, E!gtn. IV30 1 E3X Hoq.-vever, the fact that the numbers are small does preclude the establishment of specialist services for Women Offenders, even if it were considered that these are appropriate. This issue dealt with in more detail in the Review.
4. Any developments along the lines outlined in the Report, either in Moray or elsewhere country, will obviously require funding. This issue is particularly relevant to the use of diversion (Moray has a scheme but this is not one of the 100% funded pilot projects); extension of the use of Community Service/Probation; extension of the use of Supervised Attendance Orders. In Moray, the latter disposal is now being used much more frequently by Courts, but extra funding will be needed to meet this increase to enable our partners Apex Scotland to deliver the orders required.
iul the above issues and other contents of the Report will be dealt with comprehensively in the Review of our service to Women Offenders which will be sent to you by 30 November 1998.
Yours sincerely
Alan +Villis Social Work Manager (Criminal Justice Services) copy to: David Sullivan, Chief Social Work Officer John Sullivan, Assistant Chief Social Work Officer Liz Bligh, Social Worker, 1 Gordon Street, Elgin Ann Brown, Social Worker, Buckie Office Jean Sinclair, Social Worker (Addictions), I-Iighfield Annexe, Elgin Sue Oxiey, Social Worker (CJS), 9 North Guildry Street, Elgin iMargaret Fowler, Senior Social Worker (Mental Health), Dr Gray’s, Elgin APPENDIX 3
“WOMEN OFFENDERS - A SAFER WAY”
A Review of Community Disposals and The Use of Custody for Women Offenders in Scotland
REVIEW OF CRIMINAL JUSTICE SOCIAL WORK SERVICES PROVIDED TO WOMEN OFFENDERS BY THE MORAY COUNCIL
Introduction
Criminal Justice Social Work Services are delivered in Moray by an integrated team of designated Social Workers, most of whom are based in Elgin.
Two Social Workers in the team operate on a 50% Criminal Justice/fiO% Generic basis. One of these Social Workers is based in Buckie and one in Elgin, serving the Coastal Area. All Social Workers in the Team carry a full range of Criminal Justice cases and are involved in Court duty at Elgin Sheriff Court and Moray District Court on a rota basis. A part-time Projects Offrcer oversees the 3 Task Supervisors who run the Community Service Work Teams. Operational First Line Management is the responsibility of the Senior Social Worker (Criminal Justice Services) who reports to the Social Work Manager (Criminal Justice Services).
There is no penal establishment in Moray and all remand prisoners (both men and women) and all prisoners serving sentences of less than 4 years are accommodated at HM Prison Porter-field Inverness, some 40 miles distant from Elgin.
Organisation of the Review In order to prepare this Review, a Working Group was formed within the Social Work Division of the Community Services Department and this Group was chaired by Alan Willis, Social Work Manager (Criminal Justice Services). The group comprised Social Work representation from Criminal Justice Social Work; Area Teams (generic) Social Work: Social Work Addictions Service; Hospital based Mental Health Social ~. Work. The Group has met on 3 occasions and there has also been additional consultation sessions with Sheriff Noel McPartlin (Elgin Sheriff Court): Procurator Fiscal Depute (Elgin Sheriff Court); Sheriff Clerk @gin Sheriff Court); Apex Scotland (Inverness); HM Prison Porter-field Inverness (Social Work Unit). Members of the Working Group have also consulted widely throughout the Social Work Division and statistical information has been provided by the Information & Research Officer in Aberdeen City (from where The Moray Council purchases information and research services for Criminal Justice Social Work).
The final draft of this Review has been presented to the Social Work Managers Group in Moray and also to the Social Work Committee and both these bodies have approved the Review.
1 SOCIAL WORK SERVICES TO WOMEN OFFENDERS IN MORAY
The specific service areas were looked at by the Working Group and in order to form some idea of the statistical parameters, the calendar year 1997 was reviewed. Therefore, all statistics quoted under the various service heads relate to that year.
Criminal Justice The actual number of women offenders dealt with by the Criminal Justice Service in Moray is comparatively small and certainly less than male offenders, as is the norm elsewhere in the country. However, in 1997 there were variations across the various service areas as follows:
Of all these women offenders, the majority were involved in petty theft, which was not necessarily linked to addictions. (In fact, this link was only evident in one particular case). Probably as a result of this, Women Offenders in Moray are rarely in danger of receiving a custodial sentence or of being remanded in custody. For example, in 1997, only 1 woman offender was sent to custody for fine default. However, on the few occasions when custody is used, it invariably puts pressure on women offenders, as has already been noted, HM Prison Porterfield is situated some 40 miles from Elgin and HM Prison Cornton Vale is about 160 miles distant. This brings problems associated with access to families and children, who have a considerable distance to travel for visits. Equally, if a women offender has very young children, there is invariably a need for Social Work help in escorting children for access visits if families are not able to accomplish this themselves.
Although there is a substantial diversion scheme in Moray, it is important to note that this is not part of the Scottish Office Pilot Project and is therefore not 100% funded by- central Government. Even so, information provided to the Procurator Fiscal is comprehensive and this is also the case with Social Enquiry Reports presented to Courts in Moray. The Criminal Justice Social Work Service acknowledges the comments in the Report about the differences in the focus of Reports for male and female offenders. Nevertheless, in Moray continuous effort is made to highlight the range of disposals available for women offenders, despite the small numbers on whom reports are prepared. The local sheriff acknowledges the needs of women offenders and is happy to use Community Disposals where appropriate. However, Sheriff McPartlin has commented that as most of the women offenders appearing in Moray are convicted of comparatively less serious offences, disposals such as Probation and Community Service are not always appropriate.
Although the numbers are small, the Community Service Scheme in Moray has no difficulty in accommodating women offenders. In fact, there have been some very
2 successful individual placements. Equally, women offenders who have taken part in the Community Service Work Teams have integrated well, helped to create a positive ethos in the teams and seem to have found their experience of Community Service constructive and useful. For these reasons, in addition to the small numbers involved, we have never considered it appropriate in Moray to operate specialist women teams on Community Service. Financial assistance for child minding is provided in appropriate cases and women offenders particular needs are dealt with sensitively.
Probation supervision for women offenders is focused on offending behaviour and the underlying causes. Good liaison exists in Moray with other services both within the Department and also with other agencies. Therefore, it is consistently possible to construct individual programmes for women offenders that reflect their particular needs and the causes of their offending behaviour. For example, all Criminal Justice Social Workers are using the Drugs Packs devised by the Grampian Initiative.
Post sentence interviews are carried out as part of the duties of the Court Duty Social Worker and any immediate or more long term difficulties that may be encountered by women offenders are attended to wherever possible. Excellent liaison exists with the Social Work Unit at HM Prison Porter-field and it is possible to continue this assistance on a throughcare basis. This would equally apply to women offenders on remand as well as those serving a custodial sentence. Maintaining close links with HM Prison Comton Vale is more difficult owing to the distance involved. However, as the numbers are very small, considerable effort is always made to maintain this liaison and offer women offenders serving their sentences at HM Prison Cornton Vale as much assistance as possible, particularly in relation to child care responsibilities and maintaining links with other family members.
The effectiveness of services to women offenders are continually monitored through staff supervision and regular meetings with Sheriff, Procurator Fiscal, Clerk to the Justices and other agencies.
Social Work Addictions Service The Social Work Addictions Service in Moray comprises a Senior Social Worker and one part-time Social Worker. The service is integrated and accommodated with The Health Board Addictions Service and The Moray Council on Addictions Service. The Senior Social Worker (Addictions) is line managed by the Social Work Manager (Criminal Justice Services). Consequently, there is ongoing and constructive liaison between the Criminal Justice and Addictions Services.
In 1997, the Social Work Addictions Service was involved with women offenders as follows:
l 21% of referrals to the Addictions Service in 1997 were in respect of women offenders. l 50% of these referrals (i.e. the 21%) - were possible offenders. l Age range equalled 12 years to 47 years. l 50% of referred women had dependent children.
It is possible that some of the women referred were involved in prostitution although this cannot be confirmed. It seems certain that of the women referred, financial debts were a strong motivator for offending. Alcohol/drugs offer an escape from the problems. However, the addictions themselves cause difficulties and contribute to the cycle of problems experienced by the women concerned. A protocol has been established with Dr Gray’s Hospital Casualty Department and referrals are made to the Addictions Service. This is particularly the case with children who are exhibiting addiction problems. However, it has been found that this referral procedure seems to work better with adults than with children. Women offenders seen by the Addictions Service are far more likely to be abusing alcohol than any other substances.
Area Team Social Work (Generic - but mainlv child care) Although women offenders are dealt with specifically by the Criminal Justice Social Work Service, Area Team Social Workers are regularly offering services indirectly to women offenders. Many women offenders will have been subject to physical and sexual abuse at some stage in their lives. The effect on their children of this abuse and women’s offending behaviour itself, is regularly considered and responded to by Area Team Social Workers. One Area Team felt that the majority of women offenders in their area were involved in domestic disputes and that their offending behaviour (in 1997) mainly took the form of shoplifting; fraud; embezzlement; breach of the peace; Children and Young Persons Act. The latter 2 offences (i.e. breach of the peace; Children and Young Persons Act), were often linked with alcohol abuse. It was also felt that local police were often more sympathetic towards women than male offenders. One particular Area Team agreed with the suggestion in the Report that psychological and emotional explanations for offending were more often used with women than with men. Also, it was felt that there was more pressure on women than men in custody, mainly owing to child care responsibilities. Even so, it seems that women offenders use the resources of relatives for childminding when a remand or custodial sentence is being served.
Social Work (Mental Health) The Social Work Unit at Dr Gray’s Hospital Elgin has strong links with other Social Work teams in Moray. Work with women offenders exhibiting mental health problems includes regular liaison with the Criminal Justice Social Work Service and the Social Work Addictions Service.
An audit is kept on all women with mental health problems who are admitted to Dr Gray’s Hospital through Casualty. These women are assessed by a Liaison Psychiatric Nurse and Psychiatrist to assess their mental state at the time of admission.
A pen picture of 1997 showed that:
l Five women offenders with mental health problems were referred to the Mental Health Social Work Service.
l Four of these women offenders had children.
l One of these women offenders had no children. l Only one of the above women was detained in HM Prison Porter-field Inverness, She had no children. l Four of the above women had abused alcohol. l All of the women indulged in self harm, in some way e.g. cutting; overdose; alcohol abuse.
4 There are also some women who come into Dr Gray’s Hospital from police custody where no further action is taken on the offence which caused the detention. These offences are usually breach of the peace. No record is kept on these at present.
OTHER COMMENTS MADE BY MEMBERS OF THE WORKING GROUP
Prison All members of the Working Group confirmed that there is a difficulty in maintaining access to women prisoners owing to the distance between Moray and HM Prison Porterfield Inverness (approximately 40 miles). Even so, it would be helpful in working with women offenders if they all served sentences in Inverness rather than longer term offenders being sent to HM Prison Cornton Vale, which is located approximately 160 miles away. Only a comparatively small number of child care cases in Moray involve situations where mothers of children referred have served prison sentences or have been held on remand. However, when this does happen, it can pose a number of problems.
Children’s Hearing Although during the past year there has been an increasing number of referrals to the Children’s Hearing by the Sheriff at Elgin Sheriff Court under the Criminal Procedure (Scotland) Act 1995 section 49 sub-section 6, these referrals have mainly been in respect of male offenders. It is not entirely clear why this should be the case, but the situation will be monitored and discussed with Sheriff McPartlin as appropriate.
Childcare Responsibilities Mention has already been made of women offenders who are remanded or serve prison sentences and who have children living with them for whom they have a responsibility. Quite often, these will be looked after by a relative, usually the woman’s mother. Transport and access problems have already been mentioned, but equally emotional separation, anxiety and trauma may well be in evidence.
Liaison As a rural area with a comparatively small population, liaison between support services is good. These can all be mobilised to meet the needs of women offenders, whether in the community or in custody. It is recognised that these support services ~- and the necessary liaison may well be absent in a larger urban area.
OTHER AGENCIES CONSULTED JN PREPARING THIS REVIEW
1 Elgin Sheriff Court Sheriff McPartlin is of the opinion that the Sheriff Court deals with very few women offenders and usually for less serious offences. The Sheriff is convinced of the validity of Community Disposals and these would be used for women offenders where appropriate. Action Plans are welcomed by Sheriff McPartlin and these are taken into account when disposals are being decided.
The Procurator Fiscal at Elgin Sheriff Court is enthusiastic about the use of Diversion and the Scheme has grown considerably in the past few years. As will be seen, a high proportion of female alleged offenders are referred to the Scheme. Excellent liaison exists between the Procurator Fiscal’s Department and Criminal Justice Social Work and comprehensive reports are submitted in respect of alleged offenders (including women) when the Procurator Fiscal is considering Diversion as an option. Despite its success and expansion over the past few years, the Diversion Scheme continues not to be 100% funded by the Scottish Office.
2 Clerk to the District Court The Depute Clerk to the District Court has referred to paragraph 90 in chapter 2 of the Report. There, it is suggested that women are generally remanded following failure to comply with bail conditions on previous occasions, although it is accepted that no records exist to prove this. The Depute Clerk comments that this has implications for Supervised Attendance Orders and their potential in reducing receptions into custody for fine default. The point is made in the Report that where a woman offender has failed to comply with bail conditions, it is generally out of disregard for Court Orders or due to a chaotic lifestyle. It is felt by the Depute Clerk that these factors could equally apply to women offenders ordered to undertake Supervised Attendance Orders.
The implications of this are that such a women offender could quickly breach a Supervised Attendance Order and because the range of options for the Court in those circumstances is so limited, this may well propel a women offender into custody even quicker than would have been the case for simple fine default. The Depute Clerk feels that there is a need to expand the options available on default, possibly by making custody a option only on the second or subsequent default in completion of Supervised Attendance Order hours, or by “re-instating” the original fine if the offenders circumstances have changed,
There is a tir-ther comment on the suggestion in the report that the Supervised Attendance Order should be focused more appropriately for female offenders. As a number of female offenders are only ordered to serve the minimum (or “core”) of 10 hours, there is little room for specific “tailoring” of Orders.
Another comment relates to a further aspect of recommendation two, namely: the introduction of unitary fines based on the day fine system. It is felt that this might facilitate consistency in fine levels in Moray District Court, as a day tine system would automatically be adjusted according to means. At present, the impact of means on fine levels is a matter for the discretion of the Court. In relation to recommendation 5, the Depute Clerk comments that the statistical return which Moray District Court passes annually to the Scottish Office does not include any information regarding offenders remanded in custody or bail. There seems to be a need for information about the use of remand before any firm conclusions can be drawn as to why bail has not been used.
3 HM Prison Portertield Inverness (Social Work Unit)
4 The General Situation at HM Prison Porter-field
6 Women prisoners serving sentences of 2 years or more are transferred to HM Prison Cornton Vale. Sentences of less than 2 years are served at Porterfield. Transfer to Cornton Vale does create difficulties both for the women offenders concerned; Social Workers and prison staff. These difficulties relate to the considerable distance involved which has implications for childcare responsibilities; access visits etc. Social Workers are often involved in organising access visits which are time consuming and costly. There are also problems associated with the “teuchtar” factor i.e. women from Moray (and indeed, across the North of Scotland) being in the minority amongst women offenders from the Central Belt at Cornton Vale. This can lead to bullying and a general feeling of being many miles from relatives, friends and a familiar local environment. The other side of the coin is that if such women offenders were detained at Porter-field to serve their sentences, this could lead to complaints of overcrowding and insufficient resources at Porter-field.
Women offenders are accommodated at Porter-field in a small Women’s Unit, where they may be in a single cell or accommodated 2 or 3 to a cell depending on demand. Again, there is bullying potential here but on the whole, staff at Porter-field often know the prisoners well and there is a more localised and personal response than if they were in the more anonymous setting of Cornton Vale. Social Workers in the Unit at Porter-field stress the value of local knowledge in meeting the needs of prisoners (including women prisoners) at Porter-field.
Following the spate of suicides at Cornton Vale, “at risk” forms are completed for all prisoners admitted to Porter-field and ongoing files are kept in the prison which can be updated as necessary. In addition, there is Personal Offrcer’s System which means that any prisoners have someone to turn to and these Offrcer’s do regularly refer to Social Workers for advice and guidance on difficult issues that may arise. Even so, the Social Workers in the Unit at Porterfield feel that Prison Officers require better training in this area of work.
b) Fine Default It is felt by the Social Work Unit that women offenders who do serve time at Porter-field for fine default are usually in the “won’t pay” rather than the “can’t pay” category. This may be a reflection of the increasing popularity of Supervised Attendance Orders in the Courts (particularly in Moray Courts). Certainly, it is a rare occurrence for a woman offender in Moray to be imprisoned for fine default, and Supervised Attendance Orders for women (as well as for men) are increasingly popular with the Courts. Even so, it is acknowledged that women serving sentences for tine default will encounter problems relating to childcare and other issues.
4 Addictions It is felt that drugs and alcohol play a large part in the lives of most women offenders who serve sentences in Porter-field Inverness. Social Workers at Porterfield consider that more investigation is needed to identity the underlying causes of these addictions and there is a need for counselling and support. However, most women prisoners serve comparatively short
7 sentences which allows insufficient time for input of such assistance. On the whole, it is felt facilities could be improved and there is a need to explore alternative resources in the community rather than courts having unrealistic expectations about what could be achieved during a comparatively short sentence.
d) Groups Group work is carried out at Porter-field and mixed gender groups work well and seem to be effective.
e) Familv Visits These can be accommodated at Porterfield, although it is accepted that the environment in which the visits take place could be improved and has its limitations.
4 Apex Scotland The Moray Council has a partnership with Apex Scotland for the delivery of Supervised Attendance Orders in Moray. An Employment Counselling Service is also available, although this has been restricted recently owing to a lack of funding. It is also hoped to develop a partnership with Apex, for the provision of a wider range of input to Probation and Throughcare programmes. Services to Moray are provided by the Inverness Office of Apex Scotland, where staff are also active in HM Prison Porter-field. In preparing this Review, various aspects relating to women offenders were discussed with Apex Scotland as follows:
1 Supervised Attendance Orders It was noted that there were 25 Supervised Attendance Orders referred to Apex Scotland from Courts in Moray during the calendar year 1997. 18% of these Orders were in respect of Women Offenders. Apex do not differentiate in the modules used for men and women offenders. Moreover, the modules undertaken are not affected by the types of offending, although this may influence the areas of employment that are available. Apex Scotland acknowledged the issue of Childcare responsibilities, which have to be taken into account when delivering SAOs particularly to women offenders. In all other respects, men and women offenders are treated alike and often in mixed groups. This has not presented any problems so far.
2 HM Prison Porter-field Apex Scotland are active in Porterfield Prison both on a one-to-one and group work basis. Employment Awareness sessions are carried out and these are 6 sessions in length. Both men and women offenders take part in the sessions. This is equally true for the Employment Counselling Service offered by Apex. Even so, women are inevitably in a minority and they do experience employment problems on leaving prison. Interestingly, although Apex Scotland thought that a prison sentence could be a deterrent to finding employment (and the women offenders themselves feel this very strongly), it is often rare for employers to ask women about previous convictions. Apex Scotland
8 would confirm that addictions constitute a very prevalent issue for both women and men serving sentences at Porterfield.
3 Poverty Apex Scotland feel that this is a very real issue for women offenders, particularly those with childcare responsibilities. The need for money can motivate offending and theft is the most common offence for women offenders. Equally, women identify the need for employment as a means of escaping from the “poverty trap” and also so that they can feel useful and improve their self esteem. Juggling with childcare responsibilities and at the same time signing on as being available for work in order to receive benefit does present problems for a number of women.
4 Childcare The care of children is a high priority issue for most women offenders Offences against children by women offenders can be exacerbated by the influence of drugs and/or alcohol and also the undesirable associations that may arise in order to fuel further addiction. As previously mentioned, funding for Childcare is also a difficulty and relates to the Poverty issue.
5 Extension of Services As indicated above, it is hoped that the Criminal Justice Service in Moray can extend the service contracted from Apex Scotland. If offenders in Moray can make use of the varied programmes offered by Apex, this could be of as much benefit to women offenders as to men.
CONCLUSION This Review of services to women offenders has involved a range of staff from within the Social Work Division of The Moray Council and also liaison and consultation with various other agencies. Although the number of women offenders in Moray is comparatively small, the profile identified in the Report is all too familiar. Women’s offending in Moray as much as anywhere else, certainly relates to problems of poverty and a high proportion of women offenders suffer from a history of emotional, physical and sexual abuse. The only different aspect of the profile in Moray is that alcohol abuse amongst women offenders appears to be far more prevalent than abuse of other substances. Even so, there is a clear link between addictions and women’s offending behaviour.
Some women from Moray are either remanded in custody or serve sentences of imprisonment for fine default or other convictions. The excellent liaison that prevails between the Criminal Justice Social Work Service in Moray and the Social Work Unit at HM Prison Porter-field, means that attendant problems relating to custody for women offenders can be eased through intervention. However, childcare responsibilities bring their own problems and the distances involved in travelling to prisons exacerbates this. In looking to the future, all participants in this Review, particularly members of the Working Group feel that good liaison exists in Moray between services and other agencies “which helps to maximise the impact of existing resources”. However, the work carried out in preparing this Review has served as a firm reminder and catalyst for building on the collaboration that exists and finding ways of improving services in the future.
One area of work that will be monitored carefUlly is fine default and the imposition of Supervised Attendande Orders, with all the implications involved.
Finally, in welcoming this Report, Criminal Justice Social Workers have noted its contents and recommendations. This in itself, will assist Criminal Justice Social Workers in building on their assessment skills, refining Report writing on women offenders and continuing to look for imaginative ways in which programmes can be delivered to those women offenders who are made subject to Community Supervision of one kind or another.
Alan Willis Social Work Manage1 (Criminal Justice Services) Department of Community Services The Moray Council Springfield House Edgar Road Elgin Morayshire IV30 6FF
26 OCTOBER 1998
10 APPENDIX 4
WOMEN OFFENDERS - A SAFER WA Y
ADS W Response
1. The report is a welcome first step in exploring current issues in work with women offenders. The report contains many interesting and innovative approaches which will stimulate responses from criminal justice agencies throughout Scotland. The recognition that few women offenders commit crimes of violence and the conclusion that “ the number of women offenders who are sent to prison could and should be reduced” underlines the need for a fundamental review of the criminal justice system’s approach to women offenders. The recent and tragic escalation in the number of suicides of women in prison highlights the need for urgent action.
2. It is apparent that there are substantial inconsistencies in sentencing practice across Scotland which need to be addressed. While the report has an appropriate focus on social work services, it is essential that the need to address relevant issues with sentencers is not overlooked.
3. In a similar vain the obvious disparities across Scotland in prostitution related convictions highlights the need for consultation involving police, local authorities and other relevant agencies with a view to establishing a constructive policy which can tackle such difficult issues in a more positive fashion. The report could have addressed these issues in greater detail.
4. The report accurately highlights a number of issues which are common in the background of women who offend. Poverty, physical and sexual abuse, health problems and drug misuse are identified as common factors. It is important however that caution is exercised if we are to avoid generalisation which may lead to the development of inflexible responses. Research and experience would strongly support a view that treatment programmes must be developed on an individual basis. There is a danger that specific programmes designed to meet the needs of women offenders may overlook the need for individual assessment and treatment.
5. The ongoing review of reception procedures, staffing and regime at HMP Comton Vale is welcome. As highlighted in the SPS Suicide Prevention Strategy the individual’s immediate response to the surrounds and environment in the prison settin,0 is an important factor to consider. There is perhaps a tendency to give consideration only to factors in the individual’s background which may increase the risk of suicide. 6. The links between misuse of drugs and suicides in prison remain unclear. report notes that drug misuse and risk of suicide “appear” to be linked. Further research may be required to provide further insights.
7. In general the seven recommendations within the report are welcome and supported. The following specific comments are made in relation to each recommendation.
7.1 Recommendation 1
It is also important to obtain further knowledge on what basis decisions on bail are made. While it is important that bail information and advice is readily available and effective it is also important that sentencing practice is consistent.
7.2 Recommendation 2
The Scottish Office could also usefully examine a number of other areas. These include:- Development and expansion of diversion from prosecution schemes The variation in sentencing practice in different courts 100% funding for Fine Supervision Orders The full implementation of Section 235 (4) (d) of the Criminal Procedures (Scotland) Act 1995. If this legislation were to be fully implemented sentencers would no longer have the option of using custody for fine defaulters where the fine imposed was 2500 or less. This would, at a stroke, have a significant impact on custody levels in relation to both men and women. It is extremely disappointing that the report overlooks this important issue.
7.3 Recommendation 3
An inter-agency project in Glasgow would undoubtedly be beneficial in terms of addressing the problems specific to Glasgow and would provide useful information for other areas of Scotland. The high levels of prostitution related convictions in Glasgow compared to other Scottish cities and the high use of custody for women by the Glasgow Stipendiary Magistrates Court are prime examples of issues which such a group could address.
7.4 Recommendation 4
Individual local authorities will respond as requested by the end of November 199s.
/“.j Recommendation 5
The proposal to provide further statistical information on women offenders is welcome. Further discussions will be required however to establish if any additional information may be required. In general the collation of statistics has been an area of some difficulty in recent years. Criminal justice services across Scotland currently use a variety of information systems and there has been a noticeable lack of feedback on information provided for the i?ationaI Cor system.
7.6 Recommendation 6
This recommendation represents a significant step fonvard and is particularly welcome. The resource implications for local authorities may be substantial and additional finance will be required. Further consideration must be @en to the different types of accommodation which may be necessary to prevent an inappropriate mix of residents. The difficulties of financing such resources in smaller local authorities must be balanced against the need for individuals to maintain close ties with their local communities.
7. 7 Recommendation 7
The anticipated reduction in the number of women offenders in custody wil1 obviously require SPS to review its estates strate,gy. This should not however deflect from the need for SPS to sustain its current review and revision of the regimes within prisons which hold women offenders. In addition there remains a danger that any expansion in the number of places for women offenders at other prisons may undermine the need to reduce the numbers of women sent to custody.
8. Notwithstanding the above, the report is a clear well written account of the present position and highlights numerous areas which merit further consideration. ADSW welcomes this report and looks forward to positive action which will allow local authorities to assist in meeting the report’s objectives and thereby reduce the number of women held in custody.
ITEM: 3 PAGE: 1
REPORT TO: SOCIAL WORK COMMITTEE ON XZnl NOVEMBER 1998
SUBJECT: CONSULTATION PAPER: “COMMUNITY SENTENCING - THE TOUGH OPTION”
BY: DIRECTOR OF COMMUNITY SERVICES
1. Reason for Report
1.1 The purpose of this report is to inform the Committee of the consultation paper: “Community Sentencing - The Tough Option”, issued by Mr Henry McLeish on 24 September 1998.
1.2 To invite the Committee to consider representation at a Conference on Crime & Disorder Act 1998, Implications for Councils and Partner Agencies on 24’ November 1998, Central Hotel, Glasgow.
2. Backyround
2.1 On 27 November 1997, the Minister of Home Affairs, Mr Henry McLeish MP issued a briefing paper on progress to date on the Review of Criminal Justice Social Work Services which he commissioned in July 1997. A copy of that Review is included with this Report as APPENDIX 1.
2.2 On 9 January 1998, a response to the Review was sent to the Scottish Office by The Moray Council Criminal Justice Social Work Service. A copy of that response is included with this Report as APPENDIX 2.
2.3 When “The Tough Option” was issued on 24 September 1998, it was introduced as the second part of the Review containing, “suggestions to strengthen and develop the current system to make it more effective and efficient”. The consultation paper has been distributed widely and local authorities, as well as other interested parties, have been invited to submit responses to the paper by 18 December 1998. The consultation paper “Community Sentencing - The Tough Option” is included with this Report as APPENDIX 3. ITEM: 3
PAGE: 2
2.4 The Moray Council has recently received an invitation to be represented at a forthcoming Conference: ‘Crime and Disorder Act 1998 - Implications for Councils and Partner Agencies’, which is to be held at the Central Hotel, Glasgow on Tuesday, 24 November 1998. The Conference will address Anti-Social Behaviour Orders, Drug Treatment and T&sting and other Orders (eg Sex Offender Orders). Attendance is
invited from “elected members and senior officers and criminal justice and community safety officers” .As the keynote address to the conference is being given by Mr Henry McLeish, A@, the relevance of the content of the conference to “The Tough Option” is self evident.
3. The Proposals
3.1 A detailed response to “The Tough Option” will be prepared by the Social Work Manager (Criminal Justice Services) for submission to the Scottish Office by 18 December 1998.
3.2 In the meantime, considemtion can be given to the “options for change” suggested under Consultation Point 12 in the consultation paper. (See chapter 8 - “Future arrangements of Criminal Justice Social Work Services”). The three options for restructuring Criminal Justice Social Work Services are described in the consultation paper as follows:
1) Closer working arrangements between neighbouring local authorities. (In fact, this is already being explored by The Moray Council Criminal Justice Social Work Service and was mentioned in a previous report to the Social Work Committee dated 6 August 1998 - see Minute reference: Paragmph 13).
2) Formally constituted joint boards of local authorities. (Territorial areas might be based on sheriffdoms or police force boundaries).
3) A national orgauisation with a single budget. (This would effectively remove Criminal Justice Social Work Services from local authorities and it does appear that this is the favoured option. It is certainly evident from the consultation paper that the status quo is the one option that is not considered to be acceptable.
3.3 Despite the suggested necessity for “co-operation” with other local authority departments, it is of concern that there could be disadvantages in Criminal Justice Social Work Services being separated from other Social Work services within the local authority. For example, opportunities for liaison and joint working could be restricted. Equally, there may be implications for the training of staff in the new “national organisation” . ITEM: 3
PAGE: 3
3.4 Although the consultation paper will be responded to in detail, the Conference on 24 November 1998 potentially represents a useful forum for airing and sharing ideas and concerns emanating from the consultation paper, particularly as the Government Minister concerned will be present. The advance notice for the Conference is included with this Report as APPENDIX 4.
4. StaffmP Implications
4.1 If there is to be a restructuring of the delivery of Criminal Justice Social Work Services, then there will inevitably be implications for staffing. The full extent of the implications are unknown at present and will depend on the option for change that is fmally selected.
5. Financial Implications
5.1 Depending on whichever of the preferred options for change is selected, there will be financial implications. These implications may be national or local, or even a combination of the two; again, depending on whichever option for change is finally decided on.
5.2 Attendance at the Conference on 24 November 1998 would not incur any costs over and above normal travel and subsistence, as the Community Services Department currently have a credit from Cosla relating to a previous training event.
6. Environmental Implications
6.1
7. Consultation
7.1 Consultation has taken place with Sheriff Noel McPartlin (Elgin Sheriff Court); Sheriff Clerk (Elgin Sheriff Court); Procurator Fiscal Depute (Elgin Sheriff Court); David Sullivan (Chief Social Work Officer); within The Moray Council Criminal Justice Social Work Service who agree with the contents of the Report. ITEM: 3
PAGE: 4
8. Recommendations
It is recommended that the Social Work Committee:
6) Notes the.contents of the consultation paper “Community Sentencing - The Tough Option”.
(ii) Agrees that the response to the consultation paper is prepared by the Social Work Manager (Criminal Justice Services) and submitted to the Chair and Vice Chair of the Social Work Committee for approval and circulation to Committee members, before it is submitted to the Scottish Office by 18 December 1998.
(iii) Approves the representation of The Moray Council at the Conference on the Crime and Disorder Act 1998 on 24 November 1998, by the Social Work Manager (Criminal Justice Services) and an Elected Member from the Social Work Committee.
Author of Report: Alan Willis, Social Work Manager (Criminal Justice Services) Background Papers: Consultation Paper: “Community Sentencing - The Tough Option” Ref: ALANW/SW REPORT 121198 COMM SENTENCING
Signature: . . . . .
Designation: Chief Social Work Officer Name: David Sullivan APPENDIX 1 . .
REVIEW OF CRIMINAL JUSTICE SOCIAL SERVICES
BRIEFING PAPER ISSUED BY THE SCOTTISH OFFICE
INTRODUCTION
1. The Scottish Office has issued this briefing paper to assist public debate on the contribution which community based sentences and other measures can make to achieving the government’s objectives for safer communities. The Minister for Home Affairs, Mr Hew McLeish, MP, is interested in hearing views on what more might be done to ensure the availability of a fully comprehensive and effective range of non-custodial measures to support the criminal justice system in its treatment of offenders. Mr McLeish intends to issue a more detailed paper for comment early next year along with the results of a major research programme on social work and criminal justice services.
_.7 The main policy aims of criminal justice social work services are
l to provide community based programmes which maintain public safety;
l to enable offenders to address their offending behaviour and live within the law;
l to reduce the unnecessary use of custody by increasing the availability and improving the quality of community based court disposals;
l to target use on those most at risk of custody, especially young adult repeat offenders.
3. The paper is in 2 sections. Section 1 provides an overview of existing criminal justice social work services and section 2 describes a number of initiatives in process. The Annex outlines the contribution made by the voluntary sector.
SDE22 117 1 SECTION 1: OVERVIEW OF EXISTIh’G CRIMINAL JUSTICE SOCIAL WORK SERVICES
4. The present community based disposals owe their origins to probation orders. These enabled the courts to require offenders, by consent, to participate in programmes focused on assisting them to change their behaviour. Experience of operating probation as a court order led to the recognition that the courts required access to a broader range of community based options if the concept was to be fully developed.
5. In 1985 the continued upward trend in the prison population compelled a review of the various options that might contribute to a reduction in the prison admission rate.
6. At that time Community Service was effectively rationed due to resource constraints and probation appeared to have lost much of its credibility. As a consequence the available community based disposals were not achieving their potential. Funding was a major constraint. Services were funded through the Revenue Support Grant for probation and through a specific grant for community service. The specific grant provided 80% of costs for the first 5 years, 70% for the next 5 with the full costs falling to local authority budgets in year 10. Authorities were not attaching the same priority to these services as central government and so provision was below requirements.
7. The Government’s response to this situation was to introduce 100% funding of Criminal Justice Social Work Services coupled to National Standards. This policy began in April 1989 with Community Service and was extended to Probation, Social Enquiry Reports? Accommodation and Throughcare services in April 1991. Local authority social work departments continued to have responsibility for the provision of these services. The services now provided within criminal justice social work services include supervised attendance orders; probation; community service by offenders; supervision following release from custody; and support services such as accommodation and bail services; and diversion from prosecution schemes. Some of these are pilot schemes.
8. National Standards have been introduced progressively by The Scottish Office Social Work Services Group (SWSG) since 1989 in consultation with local authorities and all the main criminal justice agencies including those responsible for sentencing. These set out a framework of objectives and standards for the delivery of services and how to handle non- compliance by offenders with orders of the court.
9. Review and evaluation of National Standards is ongoing. Social Work Services Inspectorate (SWSI) carry out a continuing programme of inspections which evaluate current practice, and may make comparisons with National Standards, and make recommendations. Three National Standards Working Groups are active at present, dealing with revisions to the standards for reports to the courts, and new standards for supervised attendance orders and accommodation.
General Observations
10. Most of the services are delivered by or through local authority socia1 work departments. 100% funding is paid directly to them and is accounted for separately from
SDE22 117 2 other local authority social work expenditure. Most local authority social work departments have set up dedicated criminal justice sections working alongside and in collaboration with services for children and families and community care. There is increasing specialisation by social workers in this field and The Scottish Office has provided specialist training for senior staff. There is evidence of some specialisation within criminal justice services eg dealing with sex offenders and with substance misuse. Some additional expertise and support services are provided by outside agencies such as Apex, Sacro and NCH - eg for the provision of employment advice, accommodation and for the learning programmes included within Supervised Attendance Order (SAO) schemes or for intensive probation services.
11. National Standards and 100% funding have helped raise standards in services to the court and the administration and supervision of community disposals. This conclusion is consistent with findings of recent reports by the Social Work Service Inspectorate (SWSI) on court services and community service. The new Supervised Attendance Order and the pilot projects on diversion are still to be evaluated - research contracts will be let within the next few months. Bail services in Edinburgh and Glasgow have been evaluated and the Scottish Office is now discussing with the local authorities concerned how the main findings of the research reports can be taken account of.
12. Although the number of non-custodial disposals has risen steadily there has been no corresponding decline in prison numbers (Table 1). The growth rates are community service orders 33%, probation 61%, custody 19%. Fines as a proportion fell by 18%, perhaps due to diversion measures for less serious offencks. The most significant growth has been in serious cases in the High Court and Sheriff Solemn procedure.
Table 1. Main disposals imposed in all Scottish courts 1989-1995.
13652 13008 13638 14626 15348 16107 16269 3753 4182 4916 5326 5674 6091 6071 4135 4811 5306 5576 5185 5456 5506 _:: 133840 135302 135185 131872 116928 112763 110346 18214 19255 19791 20083 19671 18761 18515 ~~otal,:;li; ,;:,,i- j. ‘:,‘,, - ._ : 173594 176558 178836 177483 162806 159178 1567-07
13. Financial allocations to authorities for the provision of criminal justice social work services have risen from fl7.68m in 1991-92 to f30.91m in 1996-97 (Figure 1). f32.9m has been provided for these services in 1997-98.
SDE22 117 Figure 1: 100% Funding of Criminal Justice Social Work Services
33
31 -- 29.75 29 _- aSDend i 27 --
22.633
19 -- 17.68
91r32 92193 93194 94f95 95196 96197 Year
14. The costs of various court disposals in the financial year 1995-96 are estimated to have been as follows:
l cost of six months in prison: f 12,800 per prisoner place
l average cost of a probation order: f 1,400
l average cost of a community service order: f 1,600
15. Figure 2 below shows the breakdown of spending amongst the criminal justice agencies in Scotland.
SDE22 117 Figure 2. Expenditure by Criminal Justice Agency 1995-96 8CO mos D CLA “0, 3% 6% n CICB
0 SPS 16%
n Criminal Legal Aid (CLA)
I n Criminal Injuries Compensation ; Board (CICB) ~ o Sconish Pnson Service(SPS) ! 0 Police (P)
H Scottish Coun Service (SCS) m Crown OffIce (CO)
m Offender Services (OS) I
16. A brief outline of each service is given in the following paragraphs.
Court Reports
The main purpose of a social enquiry report (SER) is to provide the court with information about the offender, to help the court decide how to deal with the case. Reports can be requested by the court for any case but must be requested before imposing a custodial sentence on any offender under 21 years of age or imposing custody for the first time or making a community service or probation order, Where the report proposes a probation order, an action plan for implementing the order should be included. The number- of SERs completed since 1994/5 is shown in Figure 3 below.
Figure 3. SER Provision and Outturn
31000
29000 v) ! n SERs Provision % 27000 WI R SERs Outturn 25000 23000 94195 9396 96197 97198 Year
SDE22 117 5 Diversion
17. Schemes have been set up to enable procurators fiscal to divert suitable accused persons to social work and other service agencies as an alternative to prosecution.
18. Nineteen pilot diversion schemes are being set up for 2 years from 1997-98 in various locations throughout Scotland. They will be used for less serious offences where the grounds to prosecute exist but to do’ so may not be in the public interest. These cases may be suitable for assistance or support to address the behaviour which underlies their offence, with the aim of preventing further offending. Any type of offence may be diverted, but each case must be considered on its individual merits. Some of the pilot projects will focus on particular groups of offenders (eg drug misusers), whilst others will focus on a particular approach to intervention, (eg mediation and reparation to the victim). A diversion programme provided by the social work department or other organisation is expected to last around 6-8 weeks,
19. The range of pilots will test both waiver and deferred prosecution. Where prosecution is waived, the procurator fiscal has no further formal interest or locus in the case. Should the alleged accused fail to cooperate with the diversion programme no formal action follows (although procurators fiscal should be notified of the failure and reasons for it). Where prosecution is deferred, the fiscal receives a report from the social work supervisor and an> other interests on participation in the diversion programme as a basis for determining whether or not to prosecute.
Supervised Attendance
20. A Supervised Attendance Order (SAO) is an order of a Scottish criminal court which may be imposed as an alternative to custody in cases of fine default. Depending on the level of fine, an SAO can vary in length from 10 hours (for fine up to f 50) to 100 hours (for fine of over f 5OOj and these hours must be completed within 12 months of the order being made.
21. Supervised Attendance Orders are intended to be a low cost order entailing minimum assessment and with participation in group activity. The aim is to provide a time penalty in substitution for fine, but to use the time constructively.
22. The content of an individual order will vary according to the specific case. This can range from training modules on topics such as money management to undertaking unpaid work in the community, for example in a hospital or with a voluntary agency. In many cases: local authorities work together with voluntary sector agencies to provide a range of services within each scheme.
23. Currently there are SAO schemes operating at various locations throughout Scotland serving 29 sheriff courts (out of a total of 49) and 39 district courts (out of 67). Government policy is to provide full coverage for all sheriff and district courts by spring 1998. Provision has been made for 4500 orders in a full year at a cost of almost f2m. There were 7,509 receptions into prisons for fine default in 1995.
SDE22 117 6 ~mmU)nR~_ \ \ 24. Legislation also provides for a court to use the SAO instead of a fine for young offenders aged 16-l 7 whom the court considers would be unable to pay a fine with 28 days. The first scheme of this kind is a pilot project in Dundee which started in April 1997.
Community Service
25. A Community Service Order (CSO) may only be made if the offender consents, is 16 years or over and if otherwise the court would impose a custodial sentence. The order must be completed within 12 months.
26. A CSO requires the offender to carry out unpaid work in the community. Orders are for a minimum of 80 up to a maximum of 240 hours under summary procedure and, since July 1996, 300 hours for solemn procedure. A range of work placements are available for individuals or groups including suitable placements for those who, for reasons of health or disability, are unable to undertake physically demanding work. To benefit the community directly, and ensure community service is not seen as a soft option by offenders, local authorities were directed in April 1996 to identify environmental improvement projects placing emphasis on physically demanding outdoor work. This currently includes work in nature parks and graffiti removal in town centres. The number of CSOs provided for and achieved since 1994/5 are shoun in Figure 4 below.
Figure 4. CSO Provision and Outturn
8000 7000 6000 ? 5000 zl 4000 B CSO Provision 2 3000 n CSO Outturn 2000 1000 0 94195 95196 96197 97198 Year
Probation
27. A Probation Order is an order made with ‘the consent of the offender. The order provides for the supervision of offenders in the community for periods ranging from 6 months to 3 years and combines elements of control with assistance to address offending behaviour. Any further offending is a breach of the order and enables the court to deal once again with the original offence. All orders should be focused on dealing with offending behaviour, and in some instances this will mean the involvement of specialist programmes to assist behavioural change. In many cases, also, work may relate to dealing with problems associated with offending, such as accommodation, substance misuse or employment problems. Additional conditions may be attached to a probation order, regarding undertaking unpaid work, compensation to a victim, conditions of residence and of psychiatric or
SDE22 117 7 psychological treatment. The figures for the target and actual returns for probation from 1994/j are shown in Figure 5 below.
Figure 5. Probation Provision and Outturn
7000 -, 1 6000 5000 5g 4000 PI Probation Provision 3000 H Probation Outturn $ 2000 1000 0 94195 95196 96197 97198 Year
Throughcare
28. Throughcare services comprise the provision of social work services in prison? statutory supervision following release and voluntary support and assistance to certain ex- prisoners.
Social Work Services in Prison
29. Social workers employed by local authorities, but paid for by the Scottish Prison Service, are based in all prisons in Scotland, to provide advice and assistance in helping prisoners to address their offending behaviour, and preparing them for release and resettlement into the community.
Voluntary Support and Assistance
30. Offenders released from prison may, within 12 months of their release, seek supp-ort and advice from criminal justice social work services on a voluntary basis. Generally the support provided is short-term, for example in relation to assistance in gaining access to accommodation. The expenditure defrayed by the authority qualifies for 100% funding.
Statutory Supervision
31. Supervision of offenders following their release from custody falls into a number of categories:
l a Supervised Release Order (SRO), . a condition of discretionary early release, parole, or life licence, . offenders sentenced to over 4 years imprisonment after 1 October 1996, as a condition of release at the 213 stage if they have not been released early on parole.
SDE22 117 8 Any breach of the SRO is dealt with by the court. Breach of parole, life and non-parole licence is dealt with by the Parole Board, on behalf of the Secretary of State.
Accommodation
32. In Scotland there are presently some 200 bed spaces dedicated to criminal justice social work services. Co* may make a probation order with a condition attached requiring the offender to reside at a specified hostel address or at an address directed by the supen;ising officer. Similarly, the Parole Board can impose such a condition in the licence of a prisoner.
33. Current policy is to provide 3 or 4 hostels catering for high risk offenders identified as posing a risk to themselves or the public. These hostels will provide 24 hour supervision and strict rules governing the terms of admission and residence. Admission will be by a condition in a probation order, parole licence or bail order. The hostels will have dedicated bed spaces for females. Accommodation in “supported flats” is also available in most court areas. National Standards for the provision of accommodation are presently being prepared.
The Voluntary Sector
34. A number of voluntary organisations provide offender specific programmes for the local authorities. The programmes they provide must be in accord with National Standards. A brief summary of these agencies is set out in Annex A.
SDE22117 SECTION 2. INITIATIVES IN PROGRESS
35. This section provides a brief description of the wide range of initiatives in criminal justice social work which are already in progress. Some of these have already been referred to in section 1.
SWSI Inspections
36. Inspections of community service were carried out in 1996 and 1997. The 1996 inspection focused on the discipline and enforcement of CSOs while the 1997 community service inspection looked at placements. An inspection of probation services is underway and will be completed in early 1998. It will help identify and disseminate good practice.
Sex Offenders Review
37. The Chief Social Work Inspector is carrying out a major review of supervision of sex offenders in the community which will inform future decisions about supervision practice and the statutory framework for post release supervision. His initial report containing recommendations is likely to be published for consultation in December.
Mentally Disordered Offenders
38. A first review report will be published shortly. A full review examining the provision of mental health and social work services for mentally disordered offenders in the care of the police, prisons, courts, social work departments, the State Hospital and other psychiatric services in hospitals and in the community, is underway. The overall objective is to promote the provision of, and access to: a sufficient and effectively co-ordinated range of services to meet the individual needs of mentally disordered offenders, consistent with the public interest.
Publicity For Community Service
39. A review is being carried out of some aspects of The Scottish Office guidance on publicity for community service introduced by circular in April 1996. In particular .~the review tackles the controversial question of marking clothing and vehicles. Responses were sought from local authorities and other criminal justice interests by the end of October. A decision is planned for December.
Supervised Hostels
40. Scotland’s first 24 hour supervised hostel for offenders will open in Dundee in the first half of next year for 16 offenders, including 4 places for women. There will be an agreed number of beds available for people on bail and one place will be kept available for use by women on bail. City of Glasgow Council also have plans to convert 15 existing hostel beds for bail purposes and to introduce a new 15 bedded bail facility next year. The Glasgow facility will attach high priority to young vulnerable women offenders, to help address the difficulties of remand prisoners in Comton Vale.
SDE22 117 10 Research and Evaluation
41. A major research programme on the 100% funding of social work services to the criminal justice system has recently been completed and reports will be published early in 1998. A further phase of research will start in 1998 and address effectiveness of supervision. As noted elsewhere the Scottish Office will soon be inviting bids for contracts on the evaluation of the diversion pilots and the SAO. The Scottish Office have recently commissioned evaluations ,of 2 throughcare projects - one for sex offenders and the other for mentally disordered offenders. Currently the Scottish Office is funding research on offending among young men and women.
Bail Supervision
42. The objectives of bail supervision are:
l to identify and provide services for those people on, or at risk of, a custodial remand who, if supervision services were available, could be considered for bail, either before trial or before sentence,
l to develop services in association with bail which facilitate the protection of the public by addressing the risks of offending while on bail.
Pilots currently running in Glasgow and Edinburgh have been evaluated.
New Provisions:
Drug Treatment and Testing Order
43. The Crime and Disorder Bill will provide the opportunity to introduce, in parallel with England, the Drug Treatment and Testing Order to tackle repeat offending related to serious drug misuse. This will start on a pilot basis after the Bill becomes law.
Restriction of Liberty Orders z- 44. Pilot projects to test restriction of liberty orders with electronic tagging will start in Scotland in 1998. This new disposal will require an offender to stay in a particular place for up to 12 hours a day. The order can last for up to 12 months.
The Scottish Office November 1997
SDE22 117 11 ANNEX A
Apex
45. Apex Scotland is a voluntary sector organisation providing employment related services v,ithin the Criminal Justice System. It aims to provide practical measures to enable offenders and es-offenders gain the knowledge and skills required to obtain employment and allow them to re-integrate into society. Its services range from basic employment advice such as job application procedures to the provision of modules for nationally recognised educational qualifications.
Sacro
46. Formerly The Scottish Association for the Care and Resettlement of Offenders, Sacro has developed a range of support services, in particular supported accommodation for offenders and ex-offenders. In recent years it has expanded into the area of Mediation and Reparation.. Mediation programmes are now a major element in the development of Sacro and are in line with their wider strategic objective of promoting safer communities.
Airborne
47. The Airborne Initiative is a voluntary sector organisation which takes offenders as a condition of a court probation order. It offers an 9 week residential course combining demanding physical outward-bound type activities, intended to promote team working and self-esteem, with life skills, training and support towards employment. The project is an alternative to custody: participants are serious offenders who may previously have spent time in prison.
NCH (Action for Children)
48. NCH (formerly The National Childrens’ Home) is an organisation which provides a number of intensive probation programmes to local authorities. Presently it is active in Greenock, Dundee and Inverness. The Greenock project provides a particular focus on drug related offending. ~. Turning Point
49. Turning Point in Scotland is linked to the criminal justice system and is focused on providing help to drug misusers. It is delivering an experimental “point of arrest” support programme to misusers in police custody. The drug misuser has the opportunity to join a diversion from prosecution programme. Satisfactory completion of this may enable the procurator fiscal to take no further action. This project is also linked to the Glasgow bail information scheme which identifies women drug misusers who may be at risk, so that cases where diversion may not be appropriate need not remain in custody. Turning Point are also working closely with Glasgow City Council and Comton Vale Womens’ prison to provide integrated support for young drug misusing women offenders during their custodial sentence and after-release back into the community.
SDE22 117 12 27 November//97
McLElSH SETS FOUNDATIONS FOR FUTURE ACTION ON COMMUNITY BASED SENTENCES
Dialogue and consultation will be the key in developing new menu of alternatives through partnership
The role that non-custodial sentences can make to the Government’s key objective of safer communities is examined today in a discussion paper published by The Scottish Office.
The interim report of an on-going review of Criminal Justice Social Work Services should assist debate in this important area according to Scottish Office Home Affairs Minister Henry McLeish, who added “the public have a right to expect a tough approach to crime and its causes and that is what we are delivering”.
The paper - which provides an overview of services and describes a number of initiatives in process - examines the main policy aims of criminal justice social work services. They are:
* to provide community based programmes which maintain public : safety; 1; to enable offenders to address their offending behaviour and live within the law; * to reduce unnecessary use of custody by increasing the availability and improving the quality of community based court disposals; and * to target use on those most at risk of custody, especially young adult repeat offenders.
Mr McLeish said: “We refuse to tolerate offenders who commit serious crimes and for these individuals, prison is often the only option. But it is in all our interests to examine closely the realistic use of alternatives to prosecution and custody.
“As a Govemnient, we want to proceed through consensus and dialogue, not just with the key players within the criminal justice system, but with the Scottish public as a whole. I am determined that we should be debating exactly how our complex criminal justice system should be developing into the 2 1st century, and this paper starts this process in terms of non-custodial disposals.
“lt is vital to our criminal justice system that the judiciary remain independent and that sentencing decisions are theirs and theirs alone. What I want to do is extend their scope for choice - giving them a wide menu of tough disposals that are in the best interests of public protection. But the public and the judiciary must have confidence that we are dealing with crime through punishment and deterrence.
“I value greatly the role of all the key players in this area. They are the experts in their chosen field. I have already had discussions on this with many of the key players, including the Sheriff’s Association and COSLA, and there is a mood for developing new alternatives which is sensible and well thought through. We have made it clear that we are a listening government, keen to consult and take people with us as we act against crime. But we must proceed through consultation and dialogue, with public safety the paramount consideration.
“There are four points 1 want to bring out in this debate:
* Offenders who commit serious crimes face the real prospect of prison sentences;
* There are many offenders who, if they are not a danger to the community could be considered for community based disposals; * Non-custodial disposals provide an opportunity to tackle offending behaviour and for offenders to give something back to their community. Dealing with crime is about punishment and deterrence, and community-based disposals meet both these criteria.
* We should ensure the availability of a fully comprehensive and widely available range of effective non-custodial disposals, confronting offenders with their behaviour and encouraging a law-abiding lifestyle.
“A significant proportion of our prison population are serving sentences of six months or less. In many cases they are fine defaulters who are generally a nuisance rather than a danger. I want to offer a wider range of tough options that extends the scope of choice for sentencers.
“Community sentences are no soft option. Conditions are’strict when issued, and strict when monitored. We come down hard on those who breach orders. They may be alternatives to custody, but they are certainly not alternatives to punishment. But schemes which tackle the offending behaviour of non-violent criminals can help break the vicious circle of crime, particularly involving young people.
“My main objective remains the promotion of public safety. But cramming jails with repeat offenders at great cost to the public purse is not necessarily them- answer. We must aim to make more, and better, use of non-custodial sentences, confronting offenders with their behaviour and encouraging a law-abiding lifestyle. That is the tough approach.”
NOTES TO NEWS EDITORS
1. This paper is an interim report on the review of Criminal Justice Social Work Services that Mr McLeish commissioned in July. The Minister is interested in hearing views on what more might be done to ensure the availability of a fully comprehensive and effective range of non-custodial measures to support the criminal justice system in its treatment of offenders.
_.7 A more detailed consultation paper will be issued for comment early next year along with the results of a major research programme on social work and criminal justice services.
3. Copies of the interim report are available by calling the number below.
Andrew Slorance: 013 1 244 2952 November 27, 1997 APPENDIX 2 Community Servtc;es David Sullivan
Springfield House Edgar Road Elgin IV30 3FF Tel:01 343 557000
9 January 1998
Mrs. Valerie Macniven The Scottish Office Social Work Services Group James Craig Walk EDINBURGH EHl 3BA
Dear Mrs. Macniven
REVIEW OF CRIMINAL JUSTICE SOCIAL WORK SERVICES
Thank you for your letter dated 27th November enclosing a Briefing Paper issued by the Scottish Office and prepared by the Minister of Home Affairs, Mr. Henry McLeish MP. I must apologise for responding after your deadline, but regrettably the run-up to the Christmas holiday and the intervening break have made this inevitable.
On the whole, the review seems to be a fair overview of existing services and planned initiatives. There are just one or two points I would like to make:
1. Paae 4 ParaaraDh 14. Owing to the distances to be covered and the inaccessibility of some offenders, the unit cost of individual Orders can vary considerably. Invariably, travel costs and staff costs lead to a higher unit cost than in an urban area.
2. Paqe 6 Paraqraohs 17-l 9 - Diversion It should be noted that although “19 pilot Diversion Schemes are being set up for 2 years from 1997-1998 etc. etc.“, other well established Diversion Schemes do exist around the country. In fact, Moray was one of the first.three areas in Scotland to set up a Diversion Scheme in 1984. This Scheme has been steadily de&loped over the years, with the number and type of referrals being extended through ongoing development of the Scheme with the Procurator Fiscal. Unfortunately, Moray was not one of the successful bids for the “pilot” Diversion Schemes. However, we recognise here in Moray that the Scheme is valuable and it continues to function and develop, despite being a non 100% funded service in Moray.
3. Paoe 9 Paragraphs 32-33 - Accommodation Paragraph 33 states that “accommodation in “supported flats” is also available in most Court areas”. This is not the case in Moray. Despite the long established presence of SACRO in Aberdeen and more recently in Inverness, negotiations over the years have not yet led to any Supported Accommodation Scheme being established. However, discussions are currently in place with a view to presenting a proposal to SWSG for a Supported Accommodation initiative to be developed jointly by the Moray CounciVAberdeenshire CounciUSACRO. It is recognised that considerable resources will be invested in the four “super hostels” which, as I understand it, are to be located in the main urban centres. Clearly, these will be of minimal use to an authority like the Moray Council which is located some considerable distance from these urban centres. However, we regularly encounter accommodation difficulties in relation to
A Division of Community Services. Mike Martin, Director The Moray Council, Council Oftice, High Street, Elgin. IV30 1 E3X the category of offender that you mention i.e. “high risk offenders identified as posing a risk to themselves or the public”. It is hoped that resources will be available to fund a local initiative, despite the creation of the four “super hostels”.
Finally, I am enclosing a Paper prepared by my colleague Ron Reid who is a Criminal Justice Social Worker based in Elgin. You.will see that Ron Reid has responded to paragraph 2 of the introduction to the Briefing Paper. This type of programme which we are looking at here in Moray is probably not the usual consideration when “public safety” is mentioned. However, I am sure we all recognise that Road Traffic related offences constitute a major proportion of the work undertaken by Criminal Justice Services throughout Scotland and there is no doubt that many of these offences pose a serious threat to public safety. I enclose a copy of the Paper for your perusal and I hope that you will find this interesting. If you have any comments about this, both Ron Reid and I would be pleased to hear from you.
I hope you will find these comments helpful.
Yours sincerely
Alan Willis Social Work Manager (Criminal Justice Services)
C.C. Bob Muir, Senior Social Worker (CJS) Ron Reid, Social Worker REVIEW OF CRIMINAL JUSTICE SOCIAL WORK SERVICES
INTRODUCTION
With reference to y.oar Briefing paper issued by the Scottish Office Point (2) Policy Aims: to provide community based .- - _ programmes which maintain public safety etc.
Recently, I have been researching with colleagues in Moray, the disposal system in relation to motoring offenders. I have identified two categories of offenders who are dispensed with on a varied scale by the Court System.
1. The first is repeated Road traffic Offenders who continue to drive vehicles without insurance, a licence or appropriate MOT Certificates. Such offenders can either be young persons aged 16 to 25 or older. The disposal method available to the Court depends on monetary penalties, disqualification (which increases offending values and beliefs ie repeated RTA) and probation. The latter, as yet, has no clear offender programmes to address the attitudes and change belief value systems with an offender. These programmes are available in the probation service in England. In order to meet the challenge of community based programmes which maintain public safety, the subject at hand clearly needs to be addressed by the Criminal Justice System.
2. Secondly: Drink driving and drug related driving offenders.
Current disposal options to the court system have identified a variety of disposals with; prison disposal for repeated drink drivers ; severe financial penalties and extending disqualification.
Again, local research has identified a great deal of concern about the disposal system. Both hospital, fire brigade and a variety of other services provided a response to the issues raised by drink driver offending. ~11 of these in Moray made clear to the writer, their commitment to education and developing public safety.
Alternative approaches are available and models are being applied in the UK which are similar to USA models of practice.
a)- Drink Driving packages for those placed on probation or probation and commtinity service orders already operate in England’s Probation Service. None are available in any of Scotland’s main cities or rural areas.
b) Drink Drivers pay as you attend courses.
Currently in the USA; courts impose orders for RTA offenders to attend courses which they have to pay for via the court service agencies. Standard fees commence at $100 none refundable. This is imposed in Navada State as a condition of the Courts sentencing procedures......
2 Home based study packages and group session covering alcohol and drug education are undertaken as an element of the programmes.
c) In England and Wales a payment scheme is being piloted where RTA offenders can pay !Z250.00 to f50.00 fee to the Probation . Service to enter a drink driving course. Those on DSS pay f25 by instalments. The ability to pay is related to an individual income. All fees cover the costs of such courses.
In addition, those who agree to undertake a programme voluntarily can return to court to have their sentence reduced upon completion of the programme.
d) Drug related offending
As police monitoring of this type of offence is poor due to the lack of technical equipment, this is a clear area of concern to police and Criminal Justice Services.
However, equipment in the USA and Europe is being developed and it is clear that within one to two years, monitoring will be in place. Drug related driving programmes, similar to alcohol/drug programmes should also be researched and developed.
Again, in Scotland no work is being developed on this pattern of offending behaviour, yet figures indicate a growing trend of victims of drug driving offences.
CONCLUSION
There are 4 identifiable programmes which I believe have credible opportunities to reduce RTA offending and in at least 2 models from Probation Services in England. It is clear that these methods are having positive results.
1. a) Young drivers who are continually disqualified.
b) Drink Driving programmes as conditions of Probation.
2. a) with regard to Drink and Driving Paying Courses. These have been on a pilot basis in England for the past three years. Here too, results should indicate a positive outcome. - b) Drug related road traffic treatment is, however, a new market which should be researched further.
Both drink and drug related programmes would also rely on close contact with local drug and alcohol services available via hospital, social work or voluntary agencies. These options are only draft proposals, further investigations can be undertaken and the proposer of these programmes would be prepared to undertake further research if the Scottish Office identified these subjects as an alternative disposal option to the courts. Clearly, they would at least be directed at changing attitudes and offending beliefs as part of a probation and/or diversionary projects.
The writer has further submissions to make on detailed proposals, these will be forwarded when a response to draft propo%ls are-. made.
Contact or Ronald Reid Social Worker:, Criminal Justice Services, Elgin': telephone 01343 - 541111
Ron Reid Social Worker (Criminal Justice Services)
APPENDIX 3
,
COMMUNITY SENTENCING
THE TOUGH OPTION
REVIEW OF CRIMINAL JUSTICE SOCIAL WORK SERVICES
INDEX
1. Introduction 6
I .2 The Case for a Review 6 1.3 Summary of Phase I of the Review 7 I.4 The Consultation Process 8
2. The Changing Context 10
2.2 CriminaC Justice Social Work and Social Exclusion 10
3. Quality of Delivery and Performance of the Criminal Justice Social Work System 12
3.2 Communication and Policy Co-ordination 12 3.3 Changing the Role of the MCG I3 3.4 Local Consultation 13 3.5 CriminaI JusticeSocial Work Development Centre 14
4. Information Strategy 15
4. I Quality and Accessibility I5 4.2 Reports for Individuals Already Under Supervision 15 4.3 Information Systems I6 4.4 Promoting Criminal Justice Social Work Services 16
5. Community Disposals 17
5. I Range of Options I7 5.2 Police Warnings I7 5.3 Supervised Attendance Orders as a Disposal of First Instance I 7 5.4 Abolition of Fine Supervision Orders. I8
6. Accommodation, Bail and Throughcare 18
6.1 Supported Accommodation 18 6.2 Bail Information/Supervision I9 6.3 Throughcare I9
7. Young Offenders 20
7. I Children ‘s Hearings 20
8. Future Arrangements of Criminal Justice Social Work Setices 21
8. I Restructuring the Delivery of Criminal Justice Social Work Services 2 1
8.2 Resource Allocation for the Criminal Justice Social Work Services 23
2 8.3 The Introduction of a System of Accreditation for Criminal Justice Social Work Programmes 24
9. ANNEX A - Consultation Points 25
10. ANNEX B - Current Membership of the hlain Consultation Group 117
11. ANNEX C -List of Consultees 28
3 REVIEW OF CRIMINAL JUSTICE SOCIAL, WORK SERVICES
Foreword by Henry McLeish MP, Minister of State for Home Affairs.
The manifesto on which this Government was elected said:
“We propose a new approach to law and order: tough on crime and tough on the causes of crime. We insist on individua1 responsibility for crime and will attack ,the causes of crime by our measures to relieve social deprivation.”
We have made clear we will not tolerate serious or violent crimes, nor multiple repeat offending. Our paramount aiin is public safety. Our criminal justice policies must be targeted on public protection, to fi-ee our communities from the fear of crime and its damaging consequences.
We must also ensure that our criminal justice policies are firmly located within the wider setting of our aims on social inclusion. Criminal behaviour should be punished appropriately and discouraged but in a way that avoids driving offenders even further away from a settled law abiding lifestyle with access to jobs, homes and normal health and social services.
There will always be a need for those who commit the most serious crimes to receive a custodial sentence but the Government has a duty and a responsibility to put alternative measures in place to avoid prison being used inappropriately. And, whether in prison or in the community, the punishment should be delivered in a way which both makes offenders face up to their crimes and supports them to return to a life in the community where they are fully included into the mainstream of law abiding society.
This consultation paper reviews current policy on community based sentences and looks forward to how these can be developed to make their maximum contribution to integrating criminal justice with social inclusion We are supporting our policy commitment to these services with financial resources. Under the Comprehensive Spending Review we have pledged a further f21.4 million in total in the next 3 years bringing the annual budget to f44 million by 2001-2002.
Community disposals are not a soft option. They challenge past behaviour and encourage change, They are demandin g of the offender both physically and mentally. For example, Probation Orders with conditions attached can require offenders to think about the consequences of their actions, to tackle underlying causes such as drug misuse and to learn ways to avoid criminal behaviour in the future. Community Service Orders can provide for the offender to make amends to society, for example by requiring him or her to work on environmental improvement schemes or to help voluntary organisations.
If these disposals are to contribute to reducing the use of custody, the judiciary and the public must have confidence in them and in their ability to impact on an offender’s behaviour and to help create safer communities. They must be robust, properly targeted and shown to be effective. Both the content of programmes and the manner of their provision must meet the highest quality standards in terms of what is known to work best and in the rigour of delivery. All key players, whether in central or local Government or in the independent sector, need to
4 work together to achieve this ideal. The range of community disposals, including those which have become law recently or are currently being piloted, is broad and there is no pressure at the moment to extend it. There is a need, however, to maximise the use and impact of these disposals by targeting them appropriately, delivering them to a consistent and rising standard and monitoring their results.
An inclusive agenda for criminal justice requires that our programmes for offenders in the community are’tilly integated with our other policies to combat social exclusion and punish unacceptable behaviour in a way that is constructive and restorative rather than dama,oing or exclusive.
This paper outlines how we might build on what has been achieved so far and improve the efficiency and effectiveness of community disposals. Some of the changes are minor and can easily be incorporated into the existing system; others would require legislation. A major theme of the paper is the need for improved communication between all the key players involved in the criminal justice system and the need to build and maintain strong partnerships. The last section identifies 3 major issues-options for restructuring the delivery of services; the mechanism for resource allocation; and accreditation of programmes to ensure quality and consistency. Taken together these measures can, I believe, make a substantial impact on the future effectiveness of criminal justice social work services.
HENRY McLEISH Mp Minister of State. The Scottish Office REVIEW OF CRIMINAL JUSTICE SOCIAL WORK SERVICES
1. Introduction
1.1 .l This review of Criminal Justice Social Work Services has been brought out in two parts. The first, published in November 1997, described existing services and a number of initiatives including services offered by the voluntary sector. It sought feedback on items for further review and investigation.
1.12 This second part of the review contains suggestions to strengthen and develop the current system to make it more effective and efficient.
1.2 The Case for a Review
1.2.1 The Minister of Home Affairs, Mr Henry McLeish MI?, commissioned a review of criminal justice social work services in the Summer of 1997. The following areas were explored:
how to maximise the use of community disposals and diversion from prosecution; how to promote public confidence and acceptability of community disposals; how to promote public and community safety; how to improve the effectiveness of supervision both in terms of handling breaches of community disposals and addressing offending behaviour; how to give special attention to services for young adult repeat offenders, deterrents and intensive probation schemes; comparative costs of custodial and community disposals; new options in community disposals.
1.2.2 One of the main policy aims for criminal justice social work services is to make available to the courts a broad range of realistic community disposals which have the potential to reduce the use of custody and may provide a means to enable offenders to address their offending behaviour and live within the law. This aim must be consistent with the wider objective of promoting public and community safety.
., 1.2.3 100% funding for criminal justice social work services was introduced from 1989 and covered court reports, probation, community service and the supervision of prisoners following their release. National Objectives and Standards were introduced_ for community service in 1989 and for the other services in 1991. Both of these initiatives have resulted in a greater confidence by the judiciary in criminal justice social work services and an increase in the use of community disposals by the courts. Financial provision
6 for 100% funding for criminal justice social work has almost doubled over the last 7 years, and now covers a wider range of disposals, and other services, including accommodation and support for diversion from prosecution and bail services, on a pilot basis.
1.2.4 However, increased use of community disposals has been paralleled by. increased use of custody and a considerable expansion in the prison population, partly because of longer custodial sentences. At the same time use of fines by the courts has reduced (fiscal fines and other diversion options have contributed to this).
1.2.5 Fines are a useful penalty and are used extensively by the courts. They come within the ambit of criminal justice social work services at the stage of default and are only discussed in this context in this review.
1.3 Summary of Phase I of the Review
1.3.1 The key conclusion of the review, supported by the findings of research published in February 1998 (Social Work and Criminal Justice: Volumes l-7 1998), is that National Objectives and Standards and the 100% funding initiative have made a positive impact in achieving policy objectives, but there is no room for complacency. There is still a need for all involved in criminal justice social work to consolidate and improve on what has been achieved in the past few years.
1.3.2 The National Standards have been successful in establishing a framework for good practice. They are a key component in the Government’s drive to provide the courts with high quality community disposals which can help reduce the use of custody and contribute to public safety. This framework of standards should now be built on by placing an increasing emphasis on achieving planned outcomes and assuring quality. As more becomes known about “What Works” with offenders, so programmes must aim for even higher quality and better consistency both across the country and between prison and community settings.
1.3.3 The first phase of the review underlined the importance of good communication amongst those working in the criminal justice system at national and local level. For example, sheriffs need to be made aware of the range of community disposals available in their area. A clearer understanding of what is available and where it is likely to be most effective greatly assists the sentencing task. The general public will also want to know about what community disposals require of offenders and how successful they are.
1.3.4 In many instances communication is already good but the fust phase of the review established that there was room for improvement, for exampie, in disseminating and sharing information about working practices in different agencies. It has been suggested that inter-agency tensions and
7 misunderstandings could be reduced by more open and effective communication.
1.3.5 Expandin g the choice of high quality, effective, community-based progammes available to sentencers could have a significant impact on the policy aim of reducin,o the use of custody. Sentencers also require good quality reports on offenders to inform their decisions.
1.3.6 The supervision and resettlement of ex-prisoners returning to the community (part of the throughcare service) was identified both in the recently published research and during the course of this review as an area of criminal justice social work which required fresh attention. Earlier problems stemming f?om poor communication have, to some extent, been overcome but better communication is still needed to achieve a well co-ordinated approach between the custodial and post-release periods.
1.3.7 Evaluation of services was found to be very important. If the confidence of sheriffs, justices and the general public is to be gained and maintained it is important to be able to demonstrate that community disposals are effective through dissemination of best practice. This process requires positive outcome measures to be agreed and used as benchmarks for performance.
1.3.8 Several criminal justice social work service managers have expressed concerns about the slow processing of breaches of community disposals. In particular, the larger local authorities have a si@ficant number of offenders with outstanding warrants who have not yet been dealt with by the courts. Dealing with delays in breaches have the potential to undermine community disposals with the courts but particularly with the general public. If breaches are not taken forward promptly, there is a risk that the credibility of community-based disposals will be eroded, as offenders are not properly held to account and the community perceives the system as not acting in the public interest.
1.3.9 This paper is divided into two parts. The first part describes s~everal initiatives aimed at consolidating the present service. The second part highlights three initiatives to develop the service more radically.
1.4 The Consultation Process
1.4.1 Comments are invited on the general content of this paper and on the specific consultation points. In order to help inform debate on these issues, the Scottish Office intends to follow its normal practice of making copies of the responses received available on request. The Department will assume that responses can be made publicly available unless any respondent expresses a wish that all or part of their reply should be excluded from this arrangement, when confidentiality will be fully respected.
8 1.42 Please submit comments by 18 December 1998, addressed to
Social Work Services Group Room 13, James Craig Walk, Edinburgh, EHl3BA
or e-mailed marked Review of Criminal Justice Social Work Response, to [email protected] CONSOLIDATION OF CRIMINAL JUSTICE SOCIAL WORK SERVICES
2. The Changing Context
2.1.1 The following sections highlight some areas of current practice that require action to consolidate the positive impact of National Standards and 100% funding on criminal justice social work services.
2.1.2 The Social Work (Scotland) Act 1968 merged the separate probation service in Scotland with other welfare services to create social work departments. Since then many changes have influenced the scope and current shape of criminal justice social work services. New legislation has brought new responsibilities eg the provision of comrntity service orders, supervised attendance orders and supervised release orders. National Standards have introduced service objectives and pointed up the need for community disposals to make real demands on offenders. This may involve making amends (through community service) and taking responsibility for what they have done and, in probation, working to change their behaviour and problems associated with it. This approach recognises that offenders make active choices but that these choices may be influenced by their real life circumstances.
.4 2.1.3 The Government has made a commitment to tackle socia1 exclusion. This commitment will inform future thinking about criminal justice social work services. Many aspects of an individual’s life, whether it is health, including addictions, employment, education, or a combination of these, can lead to that individual being excluded fi-om mainstream activities and put them more at risk of offending. None of these issues can be tackled successfully in isolation. They require a coherent national strate,gy and co-ordinated implementation of policy.
2.2 Criminal Justice Social Work and Social Exclusion
2.2.1 Criminal justice social work services are often dealing with the consequences of social exclusion and it follows that the offenders with whom they work and those at risk of offending should be able to access services and resources which can assist in their re-integration. For the future there needs to be integration between policies which address the causes-of social exclusion - health, education, employment, housing - and those, including criminal justice, which have to deal with the consequences. So, for example, housing policies need to take account of previous offending behaviour which might, as with sex offenders, constrain options for accommodation. Health policies need to reconcile the medical needs of drug dependent people with the criminal aspects of their behaviour. Employment policies, notably New Deal, cannot avoid the fact that a significant proportion of their client group will have a criminal record and will require specialist handling, for example, in placements. Criminal justice social work services, in turn, need to balance the
10 offence-related needs of offenders with the priority need to address the causes of offending.
2.2.2 Community disposals can be used to link offenders into existing resources and services in the community, for example in relation to employment or education/training. In addition many local authorities are developing specialist services to tackle problems associated with offending. Taken together, social, health, education, employment and criminal justice policies should be directed towards keeping offenders out of custody and helping them into positive activity of benefit to themselves and, in turn, the community.
2.2.3 The Government’s New Deal policy is intended to create opportunities for the unemployed and those currently dependent on welfare to move back into the world of work. This policy, must be integrated with criminal justice social work services. About 60% of offenders given a community disposal are unemployed and access to the New Deal will enable many offenders to get opportunities for employment and training which were previously hard to attain.
2.2.4 The New Deal for 18-24 year olds commenced in April this year and for individuals over 2.5 will-start in November 1998. Individuals who have been unemployed for 6 months or more, including those who have offended, will be offered help to find jobs and a placement in employment or training. Distinct provision is also being made to address the special needs of particular groups such as ex-offenders. For instance the Scottish Prison Service is running a pilot programme at Barlinnie which will seek to assist its target group to improve or develop basic life and job-skills and to achieve literacy, numeracy and the other core competencies they need for employment. It will also tackle the problem of offending behaviour, which might otherwise prevent a successful transition to work or resumption of employment on release. The progTamme is aimed at prisoners aged 21-24 who are in the final three months of their sentence.
2.2.5 The inclusion of offenders in the New Deal has specific implications. For example, how will the New Deal cope with offenders whose period of training is interrupted by a short sentence(s)? Is there sufficient flexibility in the arrangements to cope with the often chaotic lifestyles of offenders? How will information pass between the social work departments and the employment services, to achieve public protection when offenders, who pose a risk, are being placed? How can the New Deal be co-ordinated with probation and community service programmes to achieve the most effective use of time?
Consultation Point 1: What particular’measures are required to ensure that the needs and circumstances of offenders in the New Deal are fully addressed?
11 3. Quality of Delivery and Performance of the Criminai Justice Social Work System
3.1.1 For both the public and the judiciary to have confidence in community disposals they must be robust, targeted appropriately and shown to be effective. The increasing use of community disposals su,ogests that the judiciary are gaining confidence in the ability of criminal justice social work to deliver services which meet their sentencing requirements. There are, however, a number of steps which could be taken further to improve the delivery and performance of these services. These include:
consultation and dialogue between key players in the criminal justice social work system at both a national and local level;
quality of reports to sheriffs from social workers;
access to information for social workers;
quality of programmes and methods of delivery;
evaluation of prograrnmes and schemes designed to modify offending behaviour.
3.2 Communication and Policy Co-ordination
3.2.1 Research and inspection have indicated that there were several areas where the flow of information could be improved and policy better co- ordinated and communicated. The study of throughcare services in the early years’ highlighted problems in communication between Parole Board, social work units in prisons and social work departments. Some of these problems have been addressed and it is acknowledged that there are examples of good practice, but more needs to be done.
3.2.2 The national inspection of social enquiry reports by SWSI (Helping the Court Decide) suggested a number of ways to improve the flow of information between social work departments and the courts at local level. It also highlighted the need to develop a shared purpose at national level in relation to the provision of information and advice. More generally, there is a need to keep all parties as well informed as possible about service trends and new developments and to promote, develop and maintain contacts. The new criminal justice bulletin, which the Scottish Office intend to publish twice yearly, will help keep criminal justice social work managers, judges, justices and others involved in criminal justice, as well as the general public, informed of recent trends, new service policy initiatives and research findings in the provision of community disposals and throughcare.
’ Social Work and Criminal Justice Volume 7: Community Based Throughcare
12 3.2.3 Consultation at the national level is undertaken through two bodies. The Criminal Justice Forum (CJF), created in November 1996 and chaired by the Secretary of State, allows the main parties in the criminal justice system to meet and discuss national issues which influence the efficient running of the system. The Main Consultation Group (MCG) was set up to oversee the development and introduction of National Objectives Standards and 100% tiding of criminal justice social work services. It is chaired by SWSG and is convened, usually, once a year. Earlier, during the intensive period of developing National Standards, it met more frequently.
3.3 Changing the Role of the MCG
3.3.1 It is now over 7 years since National Standards were introduced and the MCG formed. Given the changes and development which have occurred there is now a case for reconsidering the role and membership of the MCG.
3.3.2 When the MCG was established the membership reflected the need to get the National Standards up and running and included representation from the Scottish Office, the Judiciary, Convention of Scottish Local Authorities (COSLA), Association of Chief Police Officers in Scotland (ACPO), Association of Directors of Social Work (ADSW), British Association of Social Workers (BASW), and a representative of the voluntary agencies (see Annex B for current membership). National Standards and Objectives are now in place for most services and the issues which affect the skate,7 and operation of criminal justice social work services have changed. Criminal justice social work policy can be delivered effectively only if all the groups involved work closely together. This suggests that some changes are needed to the membership of the MCG to bring in other bodies with an interest eg Scottish Court Service (SCS), Scottish Courts Administration (SCA), Scottish Prison Service (SPS), Crown Office, the Parole Board, The Law Society, District Courts Association, the Scottish Children’s Reporter Administration and a representative of victims’ interests.
3.3.3 A revised remit might include a role in developing a national Strate,T for criminal justice social work and quality/effectiveness of services. The MCG also needs to be a forum where any problem issues which may be hindering effective delivery at a national and local level can be discussed and resolved and co-ordination of aims and objectives improved.
Consultation Point 2: Should the membership of the MCG be reconstituted and if so, which interests/bodies should be included? Is the remit suggested in paragraph 3.3.3 appropriate?
3.4 Local Consultation
3.4.1 A single national body should not be the only forum for dialogue and consultation amongst all parties concerned with the effective delivery of
13 criminal justice social work services. The Review highlighted a lack of understanding of working practices between different groups at local level. This gap might be filled by one of a number of arrangements including local equivalents of the MCG. These groupings could continue to build on existing local arrangements between courts and criminal justice social work services and other agencies. Relevant interests could include the police, the procurator fiscal service, the courts and social work, SPS, the Parole Board, health trusts/Boards and the local bar association, plus representatives from the voluntary sector including those representing victims’ interests.
3.4.2 The role of such local groupings would include improving communication and enabling problems to be identified and resolved. This would help social workers to keep sheriffs and justices informed of new initiatives, progress on pilots and the performance of specific programmes and schemes.
Consultation Point 3: Is there a need for inter-disciplinary groups to meet at local levels to take forward local strategies and resolve local problems? Which agencies should be represented and who should chair such a group?
3.5 Criminal Justice Social Work Development Centre
3.5.1 The need to focus on the quality and effectiveness of the commun.ity progTammes delivered by criminal justice social work services has been identified as essential to consolidate the success of National Standards. A Development Centre is being established to help in the identification and promotion of best practice in criminal justice social work.
3.5.2 A recommendation to create this centre was included in the Chief Inspector of Social Work’s recent report on sex offenders, “A Commitment to Protect” (1997). The Government accepted the recommendation, funding has been secured and an invitation to tender is being issued.
3.5.3 The Centre will establish and maintain a national database of research and knowledge about good practice and management and will advise -and consult with local authorities and others on proposed developments, their implementation and evaluation. There will be opportunities for secondments of criminal justice staff from statutory and voluntary sectors to help provide these functions.
3.5.4 An advisory group will be established to oversee the work of the Centre. Members of this group will be draw-n from the Scottish Office, . COSLA, ADSW, the voluntary sector and the academic community. The Centre will be required to produce an annual report which will be available to the MCG.
14 4. Information S&ate=
4.1 Quality and Accessibility
4.1.1 Recommendation 1 of “A Commitment to Protect” (see paragaph 3.5.2) proposed that there should be consultation on how to ensure that those preparing reports for sentencers have adequate information on current and previous offences.
4.1.2 A major cause for concern voiced by a considerable number of sheriffs has been the perceived lack of realism of some social enquiry reports. One reason for this is the unavailability of information about offending behaviour from a source other than the offender. With increasing interest in risk assessment and management, especially of sex offenders, the availability of reliable independent information about offending is essential on public safety grounds.
4.1.3 Machinery to allow social workers access to independent information regarding previous convictions is in place, although not yet fully implemented. Criminal records can be accessed by social workers provided an offender’s unique reference number CURN) is recorded.
Consultation Point 4: Social workers are the main, but not the only, providers of reports to sentencers. What information about current and previous offending do those providing reports need? What are the best sources of that information, and are there any obstacles to obtaining it? If so, how might it be made more readily available, and what safeguards would be required to avoid compromising confidentiality?
4.2 Reports for Individuals Already Under Supervision
4.2.1 A recent report to the Criminal Justice Forum on efficiency in the criminal justice system suggested that there was scope for reconsidering the number of reports currently produced. At present there is a -statutory requirement to obtain a fresh report before disposal of a case involqing an individual already under supervision by order of the court. The report should cover the circumstances of the offence and the character of the offender including his or her behaviour while under supervision. This procedure can be very inefficient when, for example, a report has recently been completed, the current offence is minor or the offender is in prison serving a sentence for a previous offence. There is also the problem that the court may not always be aware that the offender is under supervision at the point of sentence.
Consultation Point 5: What scope is there for changes in the legal framework surrounding the provision of reports to the courts which could improve efficiency and effectiveness?
15 4.3 Information Systems
4.3.1 National Objectives and Standards for Social Work Services in the Criminal Justice System published in 1991 by the Scottish Office describe the planned National Core Data System (NCDS). They state that SWSG will be responsible for the creation and maintenance of NCDS as a key element of its evaluation strate,T and as a basis for its analysis of statistical material.
4.3.2 A combination of factors (including the volume of work, the complexity of data collected and, more recently, local government reorganisation) resulted in incomplete returns being made by authorities and only a very limited analysis by the Scottish Office of the data collected. This led to a lack of confidence in and commitment to the NCDS. There have been two recent initiatives to re-establish confidence in the NCDS. Firstly, data from 1993 to 1997 has been collated, analysed and published (Information Note: Criminal Justice Social Work Services 1993-1997). Secondly, an aggregate return is being developed which will concentrate on the core data necessary to facilitate planning, monitoring and reporting at a national level. In addition COSLA, The Scottish Office and the Accounts Commission are working together on the information needs of social work as a whole at national and local level.
4.3.3 At a local level, authorities will be encouraged to collect and analyse more detailed information about implementation of National Standards and service outcomes, which should be used by managers and be available to S WSI during inspections and for research.
4.4 Promoting Criminal Justice Social Work Services
4.4.1 The role of Criminal Justice Social Work Services and how they provide courts with community disposals is not sufficiently well known, nor understood, by the general public. Dissemination about the work done through community service and other appropriate schemes and programmes is vital for educating, and increasing the confidence of, the public. ~. 4.4.2 SWSG Circular 12/96 (1996) suggested that local authorities should seek every opportunity to publicise the benefits of community service schemes through local media. Reports from local authorities on implementing that guidance indicated that many were making use of the local media but that they could be more pro-active about the impact of community service schemes.
Consultation Point 6: What more information could be provided for local communities about criminal justice social work services ? How should this information be made available? What could be provided centrally?
16 5. Community Disposals
5.1 Range of Options
5.1 .l The Review has suggested that there is a sufficient range of community disposals available to courts, and other bodies, which cover their needs, but that there is scope to make greater use of what exists. The range is being extended by the introduction of two new orders: Restriction of Liberty Orders (“electronic tagging”) which are being piloted in three areas (Aberdeen, Peterhead and Hamilton) and the Drug Treatment and Testing Order which is included in the Crime and Disorder Act 1998. The Women Offenders Report - A Safer Way - by the Chief Inspectors of Prisons and Social Work highlighted the need to reassess the use of community disposals for women including the place of the supervised attendance order as an alternative to custody for fine default.
5.2 Police Warnings
5.2.1 The use of some form of formal recorded warning by the police as an early intervention has been suggested by the Efficiency Task Group of the Criminal Justice Forum. It raises certain issues in relation to the police role and procedure and further consideration is being given to it. A warning of this kind could give the police a further means of dealing with offenders which would rank above the level of an on the spot warning by the police officer, but below the level of warning issued by the procurator fiscal or a fiscal fme or a fixed penalty. However, it is not currently envisaged that there would be criminal justice social work involvement with this disposal.
5.3 Supervised Attendance Orders as a Disposal of First Instance
5.3.1 A supervised attendance order (SAO) is intended as a low cost order, which is available mainly for those offenders who default on the payment of a fine, with f500 or less remaining to be paid. The SAO requires the offender to participate in a programme of education, training and/or unpaid work, -for a ~. maximum period of 100 hours to be completed within 12 months.
5.3.2 From April 1 this year all courts (with the exception of the Glasgow f district and stipendiary magistrates courts which are due to come on-line in the 0 Autumn) in Scotland have the ability to impose SAOs. Research will be i, undertaken to evaluate the use and effectiveness of this order.
5.3.3 Dundee has been pilotin,0 the use of the SAO as a disposal of fast instance for offenders aged 16-17 years and the results have been monitored_. (The courts in the Western Isles (from April 1998), Orkney (from February 1998) and the Shetland Islands (from September 1997) have also had the same power but are not part of the research evaluation). The order may be imposed in the first instance, only when the court considers that the offender would be unable to pay an appropriate fine within 28 days.
17 5.3.4 Some consultees have arped that the SAO would be more effective in reducing custody if it could be made available to courts as a disposal of first instance for all adults. In 1996 almost 9,000 prison admissions for an average period of 11 days were for fine default. Almost all of this group would be eligible for an SAO. If, however, the offender breached the SAO they may be returned to court and could be imprisoned for up to 60 days (District Court) or 90 days (Sheriff Court).
5.3.5 Could better use of be made of SAOs? Sheriffs could be given the discretion to decide whether to apply an SAO or to fine in the first instance. The SAO would remain for use in the event that an offender defaulted on payment of a fine.
Consultation Point 7: Is the current range of options for sentencing sufficient? If not what might usefully till any gaps? Is the maximum use being made of the available options?
5.4 Abolition of Fine Supervision Orders.
5.4.1 An offender under the age of 21 who has defaulted on fine repayment must undergo a period of supervision prior to receiving a prison sentence. If the offender, while under supervision, continues to fail to pay the fine, the court must obtain a report detailing the offender’s conduct and means prior to imprisonment. The intention of this order was to avoid the unnecessary use of custody for young fine defaulters. However, the implementation of schemes to supervise young fine defaulters varies across Scotland, tends not to be prioritised and is not centrally funded. Arguably, the introduction of SAO schemes will reduce the need for fines supervision.
[Consultation Point 8: Is there a case for the abolition of the Fine Supervision Order? ]
6. Accommodation, Bail and Throughcare
6.1 Supported Accommodation
6.1 .l Supported accommodation is provided by local authorities through 100% criminal justice fi_mding for those on bail, offenders under supervision in the community and for ex-prisoners who are under continuing supervision. No one single type of accommodation is suitable for the wide variety of individuals concerned. The Government’s long-term objective is to ensure that no one should receive a custodial sentence or be remanded in custody for want of appropriate community-based accommodation. This will require a range of accommodation to be provided, geared to the differing needs of individuals. Particular regard will be paid to the needs of vulnerable young offenders and those accused who would otherwise be held on remand. Implementation will be subject to the availability of resources. At local level,
18 each authority needs to develop an accommodation strategy to meet the needs of offenders and bailees within its area. Because such accommodation is expensive and demand can fluctuate, till use should be made of opportunities for partnership with other local authorities or independent providers. SWSG intends to audit current provision and provide guidance on national policy objectives.
6.2 Bail Information/Supervision
62.1 Edinburgh and Glasgow city councils have provided bail information since 1991 and bail supervision services since 1994. Although the two services developed on different lines, both are now well established and valued by the courts. Research has pointed up issues about targeting and costs which are being addressed.
6.2.2 Quite clearly, there are benefits to be gained from these services. However, in extending them beyond Edinburgh and Glasgow, consideration needs to be given to the most appropriate mode of service. Is there a need for a service at every court and at what level? Should the supervision include full access to all the criminal justice social work services programmes usually available after conviction? How should the service be provided?
Consultation Point 9: What arrangements might best assist the development of offender accommodation and bail services across Scotland, including sharing across local authority boundaries?
6.3 Throughcare
6.3.1 Throughcare is defined by National Standards as “the provision of a range of social work and associated services to prisoners and their families from the point of sentence or remand, during the period of imprisonment and following release into the community.” Throughcare has been identified by research as the least well deveIoped of all the services2. The res&rch found that, although some effective throughcare practice was evident, greater clarity of objectives was required. Communication and the formation of effective working partnerships in service provision during and after custody were identified as the main keys to an effective throughcare strategy, along with more consistent attention to the practical needs of prisoners on release.
6.3.2 Considerable progress has been made since the research was carried out. This includes the publication of revised National Standards in 1997 which, for the first time, included social work services in prison. The National Standards clarify roles and responsibilities together with benchmarks for progress, timescales and communications.
’ Social Work and Criminal Justice Volume 7: Community Based Throughcare
19 6.3.3 The Crime and Disorder Act 1998 provides for extended supervision of up to 10 years for serious sex offenders and 5 years for serious violent offenders. This measure, which wiIl be effective from the end of September, will place different demands on criminal justice social work services. Interim guidance has been issued by SWSG and, later, National Standards in Throughcare will be revised.
Consultation Point, 10: What steps need to be taken across the system in order to improve throuehcare services?
7. Young Offenders
7.1 Children’s Hearings
7.1.1 Young offenders aged between 16 and 21 have been identified as a priority group for criminal justice social work services. Offenders in this age group are most frequently dealt with in adult courts although a young person of 16 or 17 subject to a supervision requirement must be referred to the Principal Reporter for advice and possible disposal by a Children’s Hearing. The court may also remit the case of any young person less than 17% years old whether or not he or she has been under supervision. Except in the most serious cases, children under 16 are not dealt with by the criminal courts but by the Children’s Reporter. Social work support and supervision are provided by general social work department funding (ie not 100% funded). Young people should be dealt with by the Children’s Hearing for as long as possible, particularly where their welfare needs are extensive. However, this should not preclude using the skills and expertise of criminal justice social workers when dealing with offenders of this age group. The important point is that the intervention is effective.
7.1.2 These provisions to deal with more young offenders over 16 within the Children’s Hearings are not used extensively, although they could fiu-ther contribute to the policy objective of reducing the use of custody for young offenders. Amendments made to the Social Work (Scotland) Act 1968 now make it possible to use 100% tiding for this group. These provisions *ill be implemented as and when resources allow.
Consultation Point 11: What further steps might be considered to improve policy and service delivery at the interface between children’s hearings and adult courts?
20 8. Future Arrangements of Criminal Justice Social Work Services
8.1 Restructuring the Delivery of Criminal Justice Social Work Services
8.1.1 The administrative structure for delivering social work sex-vices to the criminal justice system should be such as to maximise
l effectiveness, efficiency and quality
l pubIic protection l the range of appropriate community-based disposals available to the courts l the prospect of a non-custodial disposal
This section of the paper reviews the current delivery arrangements and asks whether there are alternative models which could better deliver Ministers’ policy aims. Social work services to the criminal justice system are provided by or through unitary authorities. Provision is funded directly from The Scottish Office through 100% funding. Some related sex-vices which do not qualify for 100% f&ding are financed from other local authority budgets. Services are either provided at the authority’s own hand or by voluntary or independent bodies under contract to the authority. Following local government reorganisation there are 32 separate services of widely differing sizes, ranging in budget terms from fO.lm to f6.5m from a total of c35.4m in 1998-99. Following the Government’s Comprehensive Spending Review this figure will rise to f44m in 2001-2002 and by f21.4m in total over the next 3 years, The question is whether the present structure is still the most economic, efficient and effective arrangement. In particular, is the scale of the smaller services a constraint to delivering the full range of services efficiently and effectively? No other part of the criminal justice system is disaggregated on such a variable scale as criminal justice social work. On the other hand, there may be significant potential benefits in locating these services alongside services which support social integration, eg education, housing, community care and other social work services.
8.1.2 Ministers value the local dimension in the delivery of criminal justice social work services which is currently provided by locating the services within a local authority setting. They would, however, like to consider alternative models, preservin,0 the local dimension as far as possible but also emphasising the advantages of operating through iarger units which might achieve greater consistency and quality, secure greater judicial and public confidence, and shift the balance of expenditure more towards providing front line services and less on supporting administration.
8.1.3 Three possible alternatives to the status quo are:
l more joint working between local authorities and partnerships with the independent/voluntary sector;
21 . an area network of around 6 Criminal Justice Social Work Agencies, perhaps based on sheriffdoms; . and, to allow discussion of the complete range of options: a single national body with strong links both to the rest of the criminal justice process and to locally provided services.
8.1.4 Maintenance of the status quo would perpetuate the diseconomies of scale and associated difficulties which have emerged through the planning and financial allocations systems of supporting 32 separate management structures for, in some cases, a very small workload. A certain minimum structure is needed to maintain service delivery to National Standards, but this is undoubtedly deflecting resources away from high quality work with offenders. Nor can very small authorities hope to have available all the specialist skills necessary for working with small groups of high risk offenders. The status quo does, however, offer in-built linkages with other local authority services although these do not seem to be fully utilised.
8.1.5 The first option for change would be for local authorities to work more closely with their neighbours. Joint working could also be pursued for training, IT resources, supported accommodation and court services. This option would allow the retention of existing corporate structures, internal communication channels and local accountability. Co-operation by local authorities in providing specifically targeted programmes and training would offer some scope for economies of scale. The groupings of local authorities need not be rigid; indeed flexibility amongst local authorities in choosing partners might introduce the potential for better delivery of the service and encourage positive interactions and sharing of skills and experiences. The formation of effective partnerships between local authorities and voluntary bodies would assist the Government’s aim of providing a full menu of good quality alternatives to all courts. This approach would also fit in well with policy on Best Value in local authority services.
8.1.6 A requirement to work together could create tensions and conflicts. This might be particularly true when there was a need to identify who had lead responsibility for the provision of the service which, in turn, might impact on local accountability. There can be no guarantee that all local authorities would engage equally which might result in patchy delivery of the service.
8.1.7 The second option for change would involve criminal justice social work services being delivered through formally constituted joint boards of local authorities. Territorial areas might be based on the six sheriffdoms (which have broadly similar populations, although they do not share boundaries with local authorities) or on an amalgamation of sheriffdoms, or on some other basis (such as police force boundaries). Each unit would command a share of the budget based on a formula which might include population size, workloads, rurality factors and other indices. The groupings might be expected to provide a more cost effective and consistent service to the areas they served. Strategic direction would continue to be provided by central
22 Government but without losing contact with local democratic structures and related service strategies.
8.1.8 The creation of up to six new bodies, however organised, would have start-up costs but should yield long term savings in administration costs. The model could include the provision of some support services, such as IT and training, on a national basis. Strong co-ordination machinery would be needed td ensure that there was a clear focus on the purpose of the services and consistent quality in delivery. Likewise there would have to be effective arrangements to ensure good links with local services, which is a particular advantage of current arrangements.
8.1.9 The third and final option for change would be to set up a national organisation for the delivery of community-based criminal justice services on an all-Scotland basis with a single budget and a strong central focus on policy, effective practice, service development and co-operation with other parts of the criminal justice process and related services such as health, education, housing and employment. Within this approach there would have to be good linkages with the appropriate level of other criminal justice services and with local areas to locate the service fumly in the community where offenders live and work during a sentence or where they will be settled after a period in custody.
8.1.10 Accordingly, this option would require to build in mechanisms to maintain good working links with local communities and with services relevant to offenders which are delivered at local level, such as other social work services, housing, education and training, employment. Ministers would welcome imaginative suggestions as to how best this might be done.
8.1.11 The advantages of a single organisation would be similar to those of the second option for change and would include coherence and consistency in service delivery, economies of scale in management, training, specialist expertise, easier lines of communication with other bodies organised on a national scale, a higher public profile and better career development for staff. Although there would be start up costs to establish the body, the longer term prospect is that a higher proportion of the resources would be available for fi-ont line services with less spent on central administration.
Consultation Point 12: Criminal justice social work services could be restructured along the lines of the three options outlined in this paper. Would these, or other possibilities, improve the effectiveness of delivery of criminal justice social work services ~ across Scotland?
8.2 Resource Allocation for the Criminal Justice Social Work Services
8.2.1 The current method of allocating the budget for 100% funded criminal justice social work services does not reflect precisely the quality and quantity of work done by individual local authorities. For 1998-99 the process of
23 allocating f35m among 32 local authorities was very complex and not &lly transparent. Over 20 local authorities received grants of less than f lm.
8.2.2 The Scottish Office and COSLA have agreed to work together to review methods of allocation and consider what parameters might be relevant.
Consultation Point ,13: The method by which the SWSG budget is allocated needs to become more transparent. Would a formula approach best achieve this? If so what factors would be most relevant for inclusion in a formula? What other approaches might be followed?
8.3 The Introduction of a System of Accreditation for Criminal Justice Social Work Programmes.
8.3.1 Currently local authority social work departments provide programmes which address offending or problems associated with it either directly or through partnerships with voluntary or independent agencies. Most of these progamrnes are linked to probation but they can also be used in association with SAO schemes, deferred sentences and post-custodial supervision.
8.32 Research findings now support the general conclusion that well focused and delivered programmes which address offending behaviour and the problems associated with it achieve better results than others. Whilst there is evidence that programmes of this kind are beginning to be provided in Scotland, there is no formal validation of quality and consistency.
8.3.3 Ministers believe that the introduction of an accreditation programme to assess programme qua!ity and to “kitemark” approved programmes and providers and the settings in which they are provided will achieve greater quality and consistency of services across the country. Such an approach will further help incorporate into the development of services in Scotland the results of research elsewhere in the UK and beyond. It would further promote the development of innovative and effective services. SPS is already developing an accreditation system for some prison programmes.
8.3.4 The criteria to be used for accreditation might include factors relating to how the programme is targeted, quality and design, delivery mechanisms and proposals for monitoring and evaluation. The accreditation process could probably be undertaken by a small panel of experts drawn from The Scottish Office, local authorities, research and the voluntary sector. Other options could also be explored. Discussions on methodology will take place between The Scottish Office, local authorities, the voluntary sector and other interests.
Consultation Point 14: How best could a system of accreditation assist the development of consistent and high quality programmes? What arrangements might be put in place to deliver accreditation of programmes?
24 i :;-Y#---,-~ H tx$l /f-Jgc-;r;- 50 -- 9. ANNEX A - Consultation Points
Comments and suggestions are welcomed on the broad themes of the paper and on the specific questions highlighted below. To aid analysis of the responses it would be helpfil if the answers and comments corresponded to the order of the questions.
Consultation Point.1: What particular measures are required to ensure that the needs and circumstances of offenders in the New Deal are fully addressed?
Consultation Point 2: Should the membership of the MCG be reconstituted and if so, which interests/bodies should be included? Is the remit suggested in paragraph 3.3.3 appropriate?
Consultation Point 3: Is there a need for inter-disciplinary groups to meet at local levels to take fonvard local strategies and resolve local problems? Which agencies should be represented and who should chair such a group?
Consultation Point 4: Social workers are the main, but not the only, providers of reports to sentencers. What information about current and previous offending do those providing reports need? What are the best sources of that information, and are there any obstacles to obtaining it? If so, how might it be made more readily available, and what safeguards would be required to avoid compromising confidentiality?
Consultation Point 5: What scope is there for changes in the legal framework surrounding the provision of reports to the courts which could improve efficiency and effectiveness?
Consultation Point 6: What more information could be provided for local communities about criminal justice social work services ? What could be provided centrally?
Consultation Point 7: Is the current range of options for sentencing sufficient? If not what might usefully fill any gaps? Is the maximum use being made of the available options?
Consultation Point 8: Is there a case for the abolition of the Fine Supervision Order?
Consultation Point 9: What arrangements mi&t best assist the development of offender accommodation and bail services across Scotland, including sharing across local &thority boundaries?
Consultation Point 10: What steps need to be taken across the system in order to improve throughcare services?
Consultation Point 11: What further steps might be considered to improve policy and service delivery at the interface between children’s hearings and adult courts?
Consultation Point 12: Criminal justice social work services could be restructured along the lines of the three options outlined in this paper. Would these, or other possibilities, improve the effectiveness of delivery of criminal justice social work services across Scotland?
2.5 Consultation Point 13: The method by which the SWSG budget is allocated needs to become more transparent. Would a formula approach best achieve this? If so what factors would be most relevant for inclusion in a formula? What other approaches might be followed?
Consultation Point 14: How best could a system of accreditation assist the development of consistent and high quality programxnes? What arrangements might be put in place to deliver accreditation of programmes?
26 10. ANNEX B - Current Membership of the Main Consultation Group
Scottish Office, Home Department:
Social Work Services Group(chair) Social Work Services Inspectorate Central Research Unit Criminal Justice Group Parole and Miscarriages Review
High Court Judge Sheriff Principals Association Sheriffs Association Association of Chief Police Officers (Scotland) Voluntary Sector (through Sacro) British Association of Social Workers Association of Directors of Social Work Convention of Scottish Local Authorities
27 Il. ANNEXC - List of Consultees
Directors of Social Work and Criminal Justice Managers
Scottish Prison Service Scottish Council on Alcohol SACRO APEX Scotland Howard League for Penal Reform Association of Directors of Social Work British Association of Social Workers Association of Chief Police Officers (Scotland) Association of Scottish Police Superintendents Scottish Police Federation Scottish Courts Administration Sheriff Principals Association Sheriffs Association Temporary Sheriffs Association Principal Clerk of Session and Justiciary Lord President, Court of Session Lord Justice General District Courts Association Scottish Council for Voluntary Organisations Dean of Faculty of Advocates COSLA Law Society of Scotland Scottish Drugs Forum Bamardos (Scotland) Victim Support Scotland NCH (Action for Children) HM Chief Inspector of Prisons Crown Agent Main Consultation Group
28
APPENDIX 4 C9SLA
CRIME & DISORDER ACT 1998 Implications for Councils and Pakner Agencies
Muin Speuker: Henry McLeish, M.P. Minister for Home Affairs
24 November 1998: 9.30am-4.00pm Central Hotel, Glasgow
The conference will address ASBOs, Drug Treatment and Testing and Other Orders. Attendance is invited from elected members and senior officers and criminal justice and community safety officers. Perspectives from COSLA, police, civil liberties, community representatives, housing, social work, ethnic minorities. A full programme will be issued shortly. We anticipate strong demand for places. To reserve a place, please fax or mail presentation form (overleaf) To: Trisha Shaw, COSLA
Convention of Scottish Local Authorities , Rosebexy House, 9 Haymarket Terrace, Edinburgh EH12 5XZ. Booking information Trisha Shaw on 0131474 9274. Fax: 013 1 474 9292 Information Maggie Mellon on 0131 474 9252. Fax: 0131 474 9292
SOCIAL WORK SERVICES INSPECTORATE REPORT: “SENSING PROGRESS” - SOCIAL WORK SERVICES FOR PEOPLE WITH A SENSORY IMPAIRMENT
REPORT BY THE DIRECTOR OF COMMUNITY SERVICES
TO FOLLOW
ITEM: 5
PAGE: 1
REPORT TO: SOCIAL WORK COMMITTEE ON 12TH NOVEMBER 1998
SUBJECT: SCOTTISH COMMUNITY CARE FORUM NATIONAL CONFERENCE - POSITIVE ACTION - POSITIVE CHANGE
BY: DIRECTOR OF COMMUNITY SERVICES
1. Reason for Report
1.1 To inform the Social Work Committee of the forthcoming conference to be held on Wednesday 18* November 1998.
2. Background
2.1 Information has been received from the Scottish Community Care Forum regarding a national conference Positive Action - Positive Change to be held on Wednesday 18* November 1998 at the Baptist Centre, Stirling, 10.3Oam - 3.30pm (fill details of the conference are provided in APPENDIX I)
3. The Proposals
3.1 To determine appropriate representation from The Moray Council at the conference.
4. Financial Implications
4.1 The cost of the conference will be 28.00 for Forum member and 215.00 for nl 3n- members.
5. Stafling and Environmental Implications
5.1 There are no staffing or environmental implications associated with this report.
6. Consultation
6.1 None required. ITEM: 5
PAGE: 2 7. Recommendations
7.1 It is recommended that the Social Work Committee determine the level of representation at the conference.
Author of Report: David Sullivan, Chief Social Work Officer Background Papers: Ref: DAS/AMH/Positive Action ConEISWCrep 12 1198
Signature: .
Name: David Sullivan
Designation: Chief Social Work Officer APPENDIX I
SCOTTISH COMMUNITY CARE FORUM
NATIONAL CONFERENCE
When: Wednesday, 18th November 1998
Where: Baptist Centre, Stirling
Time: lO.OOam - 3.30pm
Fees: Forum members: di8.00 Non-members: f15.00
The main speakers will be:
Jim Jackson, Convenor, Care in the Community Scottish Working Group
Crttical analysis of Scottkh Office Action Plan for Community Care with -& user, carer and voluntary sector perspective.
Alan McGinley, Scotland Manager, Carers National Association
Still battling: what’s changed for carers? WORKSHOPS
You will have the opportunity to attend two workshops throughout the day. Workshops will be allocated on a first come first served basis.
1. AM
Users and carers tiews of assessment and care management
Survey undertaken by Borders Voluntary Community Care Forum to sound out users and carers views about their experience of their assessment and care management process and its outcome.
Annette Scobie, Co-ordinator, Borders Voluntary Community Care Forum.
PM
Promoting consultation through good practice
In Dumfi-ies & Galloway, agency collaboration has produced a good practice guide to consultation building on wide ranging local and national experience. The outcome is that local agencies are signing up to the guide as a benchmark for quality consultation.
Elizabeth Reid, Social Services, Dumfries & Galloway Council and Ann Ferguson, Age Concern Scotland.
2. ‘integrated Care Management” - What can it achieve?
During the process of Needs Assessment in 1995, it was decided by the statutory and voluntary providers in the Inverkeithing and Rosyth areas of Fife to appoint an Integrated Care Manager in order to improve the delivery of Care in the -.~- Community.
This workshop will give a brief description of systems in place for gathering information on unmet need, arranging Locality Needs Assessment, establishing a register of carers and carers support and a variety of ways of involving patients and carers in the planning process.
Judith Parkes, Integrated Care Manager, Inverkeithing Medical Group.
Involving people in a purchasing co-operative scheme - Inverness and C&loden Health Care Co-operative
Susan Von Reusner, Highland Community Care Forum WORKSHOPS (Cont)
3. Shaping Our Lives
This project has been looking at users de-g and achieving the outcomes they want in the delivery of community care services.
Michael Turner, Project Worker, Shaping Our Lives
4. Partnerships in Evaluation
A recent evaluation of the Mental Health Outreach Project, West Lot&an Council was carried out with the full participation of service users.
The workshop will be presented by those involved - service users, project staff and the Consultation & Involvement Trust Scotland. It will look at the process, experience and impact of the evaluation.
5. ASSIST ‘Toolkit”
This workshop will be led by users and workers from ASSIST (Scotland)
6. How do communities care?
A study of different types of rural and urban communities, the informal support networks that exist for ctiers within different communities and the implications for the development and delivery of community care services.
Sheena Munro, Development Worker, Highland Carers Centre Project, Princess Royal Trust for Carers. PROGRAMME
10.00 - 10.30am Registration and Coffee
10.30 - 10.45am Welcome and introduction
10.45 - 11.30am Jim Jackson, Convenor, Care in the Community Scottish Working Group
11.30am - 12.30pm Workshops (see centre pages for workshop outlines)
12.30 - 1.30pm Lunch
1.30 - 2.15pm Alan McGinley, Scotland Manager, Carers National Association
2.15 - 3.15pm Workshops repeated
3.15 - 3.30pm Plenary - Annette Scobie, Convenor, Scottish Community Care Forum
3.30pm Tea/Depart ITEM: L
PAGE: 1
REPORT TO: HOUSING COMMITTEE ON 10 NOVEMBER 1998 AND SOCIAL WORK COMMITTEE ON 12 NOVEMBER 1998
SUBJECT: COMMUNITY SERVICES DEPARTMENT KEY SERVICE PLAN 1999/2ooo
BY: DIRECTOR OF COMMUNITY SERVICES
1. Reason for Report
1.1 This report seeks the consideration and approval of Housing and Social Work Committees of the proposed Key Service Plan for 1999/2000, for the Community Services Department.
2. Backmound
2.1 As part of the revised Best Value regime process set out by The Scottish Office, a new Best Value Implementation Plan is required to be submitted to The Scottish Office by the end of November 1998.
2.2 An important part of the Implementation Plan process is to ensure that Key Service Plans are drawn up for each Department.
3. The ProDosaIs ~~
3.1 It has been agreed that the Key Service Plans for 1999/2ooO concentrate on the Service Reviews to be undertaken by each Department. This is therefore reflected in the Community Services Department Key Service Plan, which also includes an update on the Best Value Reviews being undertaken during 1998/1999. The Key Service Plan is attached as Appendix 1 of this report.
3.2 The Service Reviews to be undertaken in 1999/2000 are as follows.
0 Customer Care and Public Information l Community Care l Drug and Alcohol Services and the Drug Action Team 0 Private Sector Housing Grants Service l Tenant Participation ITEM: k
PAGE: 2 3.3 Staff teams have been involved in contributing to the review process by identifying suggested service improvements relating to the services to be reviewed. These are included as part of the Key Service Plan.
4. Financial Implications
4.1 The Service Reviews will be led by Community Services staff and from existing resources. However some aspects of some reviews may require additional resources, which will be managed with the Departmental budget.
5. StaffinP Implications
5.1 There are no direct staffing implications apart from staff time required to undertake the Service Reviews. The outcome of some reviews may have staffing implications which will be considered at the appropriate time.
6. Consultations
6.1 All Community Services Department staff have had the opportunity to contribute to the Key Service Plan. The Key Service Plan has been approved by the Community Services Departmental Management Team. Consultation on this report has been held with the Director of Community Services, Chief Housing Officer, Chief Social Work Officer, and the Planning and Development Assistant.
7. Recommendation
7.1 Housing Committee and Social Work Committee are asked to approve the Key Service Plan for the Community Services Department enclosed as Appendix 1 of this report.
Author of Report: Alistair Watt, Development and Resources Manager Background Papers: Best Value and Key Service Plan Papers held in the Department Ref: AWIJHD
Signature: . . s-...... /?...... &ti...... $-r- Designation: Director of Community Services
Name: Mike Martin
COMMUNITY
SERVICES
DEPARTMENT
KEY SERVICE PLAN
1999-2000 COrVTENTS PAGE
Introduction 3
Best Value Reviews 1995-1999: Summary of Progress: 4
Best Value Reviews 1999-2000: Briefs, Action Plans and Service Improvements: 7
Customer Care and Public Information: brief and action plan 8 Customer Care and Public Information: service improvements 11
Community Care: brief and action plan 19 Community Care: service improvements 23
Drugs & Alcohol Services/Drug Action Team: brief and action plan 29 Drugs & Alcohol Services/Drug Action Team: service improvements 32
Private Sector Housing Grants: brief and action plan 33 Private Sector Housing Grants: service improvements 36
Tenant Participation Strategy: brief and action plan 37 Tenant Participation Strategy: service improvements 39
Appendix 1: Three Year Programme of Best Value Service Reviews 40
Appendix 2: Glossary of Terms 42
Appendix 3: List of Service Improvements Grouped by Type 46 -.
2 I/VTRODlJCTION
This Community Services Department Key Service Plan for 1999-2000 has been developed as pax-t of the Department’s commitment to the Government’s Best Value Regime for local authorities. Under the Best Value Regime, the Department will seek continuously to improve the quality, efficiency and effectiveness of all its services.
The Department wiIl carry out formal Service Reviews of all its services over a three- year rolling programme (see pages 40-41). During 1999-2000, the department will undertake Best Value Reviews of the following areas:
Customer Care and Public Information Services Community Care Drug & Alcohol Services Tenant Participation Strategy Private Sector Housing Grants Service
Corporate Service Plan and Best Value Implementation Plan
In addition to the service reviews, the Community Services Department will contribute to the council’s corporate Service Plan and Best Value Implementation Plan.
Management Development
The Community Services Department recognises a need for continuous improvement in its management to enable improvement in services. During 1999-2000, a management development pro,bramme will be under way with the aim of achieving this.
How the Kev Service Plan was developed:
In order to link the Best Value and Key Service Plan processes, all first line managers were asked to put forward service improvements related to onr; or more of the above five areas. These proposals form the basis of this Plan. They reflect the Department’s- key principles and aim to ensure -
3 Quality services - delivered in an open and accountable manner > Continuous improvement across all sections of the department > A focus on service users: their needs, opinions and involvement 9 Sound strategic plannin g, operational and financial management > Staff involvement in reviewing and developing sex-vices > A Plan which can be easily implemented and monitored 3 A Plan which will demonstrate that the department is open, accountable, and responsive to changing needs
3 REST VALUE SERVICE REVIEWS 1998-1999: PROGRESS SUMMARY
1. Non HRA Capital Programme (completion date: March 1999)
A customer satisfaction survey was undertaken durin,o Sep-October: the findings will be analysed and used in conjunction with the results of the House Condition Survey. Work will commence in November on a format for collecting users’ views on an ongoing basis in future.
House Condition Survev is being undertaken by an independent company and should be completed by end November 1999.
2. Domiciliarv Care (completion date rescheduled for December 1998)
Service Review commissioned from independent consultants and a draft report received in September was discussed at Committee on 8* October. Further work will be carried out on costs, benchmarking etc during November with a view to a final report to Committee in early January 1999.
3. Services for Older People (original completion date July 1998)
Working Party reconvened and meeting on regular basis. Agreement with Age Concern for joint work to develop process for seeking views of older people on Community care issues.
Replacement for Auchemack Home on-site: regular steering group meetings. Replacement for Bishopmill: steering group met regularly with initial brief for day care and housing agreed. Progress on hold pending site acquisition.
4. Social Work IT Svstem Implementation (completion date March 1999)
First phase of implementation (Care First - the core system) and training undertaken; ~_ following award of contract which was subject to competitive tender. Implementation ongoing and progressing well, on phased basis.
5. DMT Management Development Programme (original completion date June 1998)
This was an internal review facilitated by external consultants following a tendering process. Action plans and priorities for DMT produced. iClana,oement Development Programme for first line managers now being developed.
4 6. Capital Programme Procurement and klonitorine Arrangements (completion date March 1999)
Service Specification: a draft specification has been agreed in principle with Property Services.
User Satisfaction: a staff questionnaire has been issued.
Benchmarking: Property Services have undertaken some benchmarking and this will be subject of discussion during November/December.
7. Communitv Alarm (original completion date October 1998)
Service Review commissioned from independent consultant and report received April 1998. Review process included analysis of current service (equipment, technology, procedures, personnel, users, costs, gaps in service) and put forward three options for future operation of the service.
Customer Satisfaction: this did not form part of the consultant’s remit and will be researched during November.
Service Level ADeement: as the service is currently managed via Aberdeen City, a draft SLA is under negotiation and a response is awaited.
8. Services For People with Learning Disabilitv (completion date March 1999)
This review commenced early in October. A staff meetins has been held and tasks have been allocated. Basic costs have been made available from some other local authorities for comparison.
9. Housing Plan and Housing Oualitv Plan
Housing Plan was completed on time in July 1998.
Housirx Ouality Plan could not commence until guidelines received from Scottish Office. During October, the Scottish Office have indicated that a formal Housing Quality Plan (now referred to as a Housing Service Plan) will not be mandatory. However, the department will consider how to schedule a review of its housing service. A Tenants’ Survey has been commissioned from independent consulrarxs and is scheduled for completion in February 1999.
10. Housing Staffin Review (original completion date July 1998)
A staff consultation exercise was undertaken during January 1998 to determine the most appropriate staffing structure for the department following the moratorium on CCT for housing management services. Housin,o Committee received a report in August and a decision was deferred. In September, Housin_g Committee recommended the findings of the report and to Policy & Resources Committee who approved the recommendations in October.
5 11. Criminal Justice Services
This review is scheduled to commence in December 1998 for completion in March 1999.
12. Mental Health Framework
This document was produced in July 1998 according to Scottish Office guidelines. The Department will consider how to slot a review of its mental health services into its three year programme. BEST VALUE REVIEWS 1999-2000:
BRIEFS, ACTION PLtWS AND SERVICE IMPROVEMENTS
Customer Care and Public Information: brief and action plan 8 Customer Care and Public Information: service improvements 11
Community Care: brief and action plan 19 Community Care: service improvements 23
Drugs & Alcohol Services/Drug Action Team: brief and action plan 29 Drugs & Alcohol Services/Drug Action Team: service improvements 32
Private Sector Housing Grants: brief and action plan 33 Private Sector Housing Grants: service improvements 36
Tenant Participation Strategy: brief and action plan 37 Tenant Participation Strategy: service improvements 39
7 REVIEW AND IMPROVE CUSTOMER CARE AND INFORMATION SERVICES TO THE PUBLIC
LEAD OFFICER: ALISTAIR WATT
Review Brief:
1. To review implementation of current corporate Customer Care policy in respect of Community Serjices Department responsibilities and to recommend improvements to the policy and adjustments to operational practices to enhance the quality and effectiveness of customer care.
2. To assess the range and quality of information available to the public regarding Community Services Department services, including access, eligibility criteria and other areas where the quality of information should be improved.
3. Introduce a programme to improve the quality and range of public information regarding Community Services Department services and establish arrangements to implement the programme.
4. Test and evaluate the public perception of Community Services Department services through customer feedback processes and make recommendations for change based on the outcome.
5. Collect from each Service Team/Section up to three actions to be taken to improve Customer Care and Information Services within their team/section.
6. Review and assess the relationship between Community Services Department Information and Access arrangements and the corporate Moray Access Points and recommend improvements that will benefit the public.
7. Consider the scope for “one stop” or “first stop” approaches to information, advice and access to the department’s services through either “call centre” approaches, “intake” services or other arrangements. a. Develop proposals for improved service user involvement and citizen participation in Community Service Department activities to enhance service design, development and delivery. (NB: relate to Housing Plan and Tenant Pmicipation Strategy, Community Care Plan consultations, Children’s Plan consultations - note: all involve continuous consultation arrangements).
Timescale for Review February 1999 - November 1999 ACTIONS TIME- TABLE ==-=--I l.Draft Service Spec blD?vl,‘DhfT/BVG 1. Agree Review Brief 1. Sep 98 AWfMwPM-r/ 3. Develop service objectives/outcomes 3. Feb 99 First Line MXlag!crS
2. Establish cost of service
1. Identify budgets that support Customer Care, 1. Mar99 rvIw/XT/LP Information Services and other identified/agreed activities. 2. Subjective analysis/interpretation of budgets to 3. Apr 99 A!V/AT/L.F’ identify possible options for change.
3. Research customer satisfaction
1. Analysis of customer complaints 1. Apr 99 n/nV 2. Exit survey from area offices 2. AprfMay 99 Mw/Area 3. Assess feedback from Service Plan/Strategy Managers 3. AprfMay 99 MT/Service lonsultations Review Lead 3fficers
4. Consider need for further feedback through surveys, 4. June 99 mvlswMs/ lser panels etc mvkC 5. Request ideas/proposals for improvement from all service teams in department 5. Sep-Nov 98 4?V/wB
1. Analvse how competition would benefit service
1. Consider if there are alternative providers who could I. Jun/July 99 4w/Mw :arry out these functions !. If yes - carry out option appraisal r2. Jul/Aug 99 4wfinv 5. Benchmark Service
1. Front Line Staff Survey 1. May/June 99 bnv 2. Identify department’s processes and assess existing 2May/June 99 MW service. 3. Research best practice 3. Jun/Aug 99 MW 4. Compare services against other departments/services 4. Jun/July 99 bnv of Moray Council 5. Compare services with other local authorities 5. Jun/Au,o 99 mv 6. Identify an appropriate private sector organisation to 4wfMw/s WM’SI benchmark 6. Jun/Aug 99 cnkc
7. Identify practices that can be adopted 7. AugfSept 99 mv 8. Identify need for changes in processes and practices 3. Au$Sept 99 WV 6. Assessment of qualitv/performance
1. Evaluate information re current services and feedback 1. Jun/July 99 vnv from customer research 2. evaluate info from benchmarking exercises !. AuglSep 99 Vnv/.4w 3. develop proposals to improve customer care and j. Sep/Oct 99 dwlAw/s wh18 SI information services based on outcome of review and set VlMCC out as action programme dwlAw/DMT/ 4. undertake option appraisal to test approaches to ‘. Sep/Nov 99 :orp.Services developing “one stop” or “fist stop” access arrangements and negotiate and agree position with Corporate Services in respect of Moray Access Points 7. Market testing
1. Consider cost/benefits of providing the service with ;ep/Oct 99 /I\N/AW/ATPSI 3r through partner agencies (eg Local Health Care Co- :J 3P) 2. If benchmarking identifies benefits from external qov 99 &V/CL provider, prepare specification and seek expressions of interest.
3 vear budget plan.
Zest out agreed service improvement programme and lctmov 99 \W/ATjDMT :nsure budget provision is established.
brnbr Mike Martin hl!~lC c Mike iClcClaferty DblT Departmental Management Team MB illar,oaret Brown BVG Best Value Group DS David Sdiivan AW Alistair Watt CJ Catherine Jamieson MW Mike Whelan GL Cordon Lindsuy AT Aileen Taft LP Lorraine Paisey S WM Social 1Vork Managers r 1 CUSTOMER CARE AND PUBLIC INFORMATION
SERVICE IMPROVEMENTS 1999-2000
Service Improvemeritfs~ Outcomes and Links to Best Vnlue
4dministration I’raining of reception and other front-line admin improved service to customers and general public. 4ileen Toft ;taff to increase understanding of information and :ligibility criteria. %ks to Best Value: customerlcitizen focus and iounil operational management. 411~ external training costs will be met by ndmin raining budget allocation. 1rea Teams: I-lousing ie-introduction of pre- and post-inspection of ?ormal monitor of quality of workmanship and level ,ercentage of housing response repairs. If customer satisfaction. -1ousing Operations tiike McClnfferty Within existing resources. Training implications for hks to Best Vdtte: ctistomcrlcitizen fouls and :ustorner care/SOR/time management. round operational management. Improve efficiency in delivering customer care Improve local accountability and involve customers policies and to provide information/advice at local in all essential procedures. level. Progress idea of Moray Access Points. Links to Best I/due: cllstomcrlcitizen focus. No additional staffing/admin resources. Funding vi:i HRA budget for training (corporate budget for training non housing staff).
11 Area Teams: Buckie Ongoing in-house training of Access Point staff to Provision of a satisfactory service to the public. Social \lrork Team increase their knowledge of social work and ensure Trisha Hall people dealt with appropriately at the MAP. Links to Best Value: cwtomerlcitizetl focus. Resources can be met in-house or through Training Plan. Area Teams: Buckie Interagency training within Buckie area to increase Aim for other council departments or agencies to Social Work Team awareness of child care services. have knowledge of child care and who provides Trisha Hall Resources = staff time, mileage, clerical support, what services so this information can be provided to meeting costs (catering and room) being met the public. through existing budgets. Projects - investigate Apex, Challenge Fund etc Links to Best Value: sound strategic and operational Training. management; customerlcitizer2 focus. Area Texns: Elgin More effective use of support staff in delivery of Improved customer care priorities, particularly in Housing Team service objectives, particularly re customer care respect of reception provision. h4alcolm McNeil targets. More effective use of site c‘aretaker. Links to Best Value: crtstomerlcitizen focus arld Within current constraints and budget - minor sound operational management. equipt costs anticipated. Ongoing training in customer care and operational procedures. Substantial initial training for caretaker achievable within existing resources. Area Teams: Elgin Realign areas serviced by Housing Officers and Improved service delivery in the field with structure Housing Team more effective use of Area Office staff base in duty reflecting service priorities and objectives. Malcolm h4cNeil provision. To be achieved within existing budget. Training and development of additional officer. Links to Best Vahe: cllston~erlcitizenfoclls and sotrnd operathal matlagement.
12 Area Teams: Elgin and Duty system - core duty/intake team to provide Co-ordinated system will improve service. Lossiemouth Social Work more consistent uniform service and appointment Links to Best Value: sormd operational management Jady Smirh and system. and customer/citizen foclts. GRITS Harkins Area Teams: Forres Schedule of Rates Manual: amend into user-friendly Improved document will increase staff HousingTeam working document for staff. understanding and reduce staff time. Alastair Mitchell Funding via HRA. Links to Best Value: sound operational management and customerlcitizen foclts. Area Teams :Forres Tenants’ Handbook: update and amend information Tenants’ Service Handbook will improve HousingTeam leaflets for handbook. information to tenants. Alastair h4itchell Funding via I-IRA. Links to Best Vultte: cu.stomerlcitizen focus. AI-en Teams: Fan-es Housing Procedure manual - update. Updating of an essential working document for Housing Tenni housing staff. .+\lastair h,litchell Funding via I-IRA. Links to Best Value: sound operational management Area Te:uns: Forres Duty System - specified duty slots to provide Reduce waiting times and inconvenience. Social Work Team predictable service for members of the public Links to Best Value: solmd operational management Mark Cotter through an appointments system. mid ciNomerlcitizen f0cil.s Area Teams: Forres Develop Family Support Worker Service Retention of trained staff and reduced risks to Social Work Team children. Mark Cotter Possible financial savings. Links to Best Value: sotmd operational management and cltstomerlcitize/l focus Axa l’e:tms: Keith Improve work request procedures to reduce More efficient services for tenants. Housing Team duplication. Rae Munro Links to Best Value: cttstornerlcitizen foctls and Funding already identified and internal staff sound operational matlaSement. resources.
13 Area Teams: Keith See section below on Tenant Participation for IHousing Team details of tenants’ newsletter and focus group to Rae h4unro consider stnndnrdised correspondence. Area Tennis: Keith Promote use of comments cards by service users in Links to Best Value: ctlstomertcitizen focus. Social Work Team resource centre. Jeremy Akehurst Area Teams: Introduce Workload Management System to assist Will provide clearer overview pf service, identify Lossiemouth Social Work in caseload management, prevent staff overload and gaps in service, ensure effective use of resources Gerry Harkins ensure customers receive appropriate level of and identify where additional resources are required. service. Links to Best Value: sound strategic and operatiorlal Resource implications - staff time. management; crtstomerlcitizen focus. Capital S: Revenue Progrnmmes Widen availability of housing improvement and Enable tenants to be aware of progress of existing Dougie McIntyre estates upgrading programming information contracts and forthcoming programme of proposed works. Resources: printing costs of newsletter, reformatting of existing information for public use: via existing Links to Best Value: cllstomerlcitizen jives. budgets. Limited staff training implications. Capital & Revenue Programnies Develop advice 6r information leaflets covering Standardisation of format for information given to Dougie McIntyre energy efficiency, repairs, upgrading contracts etc. tenants will allow Access Points and Housing Offices to give more accurate information to public. Funding via T-IRA Links to Best Value: customerlcitizen focus. Care Management ((21’ Linkedl Implement framework of service accomplishments Will determine whether or not the user had level of Kate Silnderson as tool to evaluate quality of service from user self determination in their needs being met. perspec!ive. Lir1k.s to Best Vallte: ctl.stonlerlcitizerl fouls. Need training in accomplishments model. Children CCC Young P’eople Procluc~ion of informntion IeilfICtS Links to best Vallte: clLstonierlcitizer~ f0cll.s. John C’arncy Children S: Young People Consumer feedback: development of cross-agency Feedback profomia will look at child care processes John Carne~ approach and child care proformn. from consumer perspective. Links to Best Value: customerlcitizen focus and soimd operational management. Children 6r Young People Duty survey: analysis of survey results to feed into Links to Best Value: cttstomerlcitizen focus and John Carney review of front-line arrangements souriti operational management Community Alarm Improve existing forms, information leaflets and Improved awareness of procedures will reduce Susan Anderson advice to customers. delays in discharging people into community.
Links to Best Value: cltstomerlcitizen focus. ContIacts Information service for all service providers Meet information requests from independent sector Gordon Lindsay (produce information leaflets on contracting, service providers. stand‘ards and monitoring). Resource implications- production of leaflets - needs to be identified Links to Best Valtte: sound operational against a budget. management, ciistomerlcitizen f0cli.s. Criminal Justice Services Promote service ( eg press releases/articles, talks Increase public awareness. Al:111 Willis/Bob Muir etc) Update and improve leaflets as necessary. Improve responses from offenders owing to better Investigate CJS page on Moray website. availability of knowledge about CJS services. Quality Assurance questionnaire for services. Links to Best Vallle: uutomerlcitizen focus. Cost of leaflets etc -ongoing budget negotiations with Scottish Office. DLO (Building Services) Update stock control system to improve invoice Improved efficiency will (1) enable additional Rod Nelson-Shaw certification. Initial IT costs to be funded from funding to be available for improved service current year surpluses. Minimal supplier/in-house delivery and (2) contribute to customer satisfaction. tmining. Links to Best Value: sotmd operational managemejlt arid ciistomerlcitizerz focrrs. l-lousing Needs Section Review allocations policy Ensure fair service to customers. Richard Anderson Links to Best Value: sound strategic and operational management and customerlcitizen focus iHousing Needs Secrion Timescnle of 28 days for the issue of decision letters Improved customer service. Richard Anderson - homelessness Links to Best Value: sound operational management and ctrstomerlcitizen focus. Housing Needs Section Letting Plans - to maintain balanced communities. Links to Best Value: sound strategic arid operational Richard Anderson mnnagement; ctistonierlcitizfh fouls. Learning Disability Services Leaflets Links to Best Value: customerlcitizen focus. Community LD Team -Anne Slee Occupational Therapy Review charging policy and procedures. Improved public information and clearer staff Aileen Clark guidelines. See Private Sector Grants section for item on public Links to Best Value: customerlcitizen focus and information. sol& operational management. Out of Hours Duty Social Workers- liaison with area fieldwork Ensure satisfactory response given to customers John Brewer and other specialist teams. both at point of contact and throughout any No resource implications continuing contact. Links to Best Value: sottnd operational management and customerlcitizen focus. Quality Assurance Promote customer care ethos to staff and customers. Increased level of customer satisfaction and better Mike Whclari Develop media for service feedback - not just understanding of customer needs. Obtain feedback complaints procedure. on services to assess customer satisfaction.
Staff training will be required - resourced via Links to Best Value: cltstonlcrlcitizell foclts. - exisling budgets
16 Registration & Inspection Unit Information leaflets describing unit’s function and Links to Best Value: customerlcitizen focus. Irene Grant the role/responsibility of staff.
Staff time -minimal, within budget. Cost of production - likely to be in existing budget. Residential Homes - Older People Time management and management of change for Reprovisioning of residential facilities in Elgin - Bishopmill residents. More team building exercises. implications for residents - work to improve Bill Murray independent living skills. Within existing resources. Links to Best Value: cllstomerlcitizerl focus Residential Homes - Older People Transport for residents and day care service users. Links to Best Value: customerlcitizen focus C lenisln Via fundraising, transport budget, comfort fund. Yvonne Sharp Residential Homes - Older People Staff to meet with residents, relatives, advocates to Links to Best Value: customerlcitizen focus Glenisla discuss service delivery. This feedback will be used Y\‘OIlW s hxp to provide a person-centred service. Residential Homes - Older People Collate and implement procedures: Ensure adherence to ‘Standards in Residential Care’ Spcyside and enable standards to be measured and service Ann Kennaugh > Pre-admission delivery improved. ); Admission Links to Best Value: customerlcitizelz focus and 3 Fire sound operationnl managemcrzt. I:csource Centre Operation of appointments system by Disability Improved service delivery. Elizabeth McPherson Living Centre and Information Service. Links to Best Value: customerlcitizen fouls and sound operational management. ~Resource Centre Increase service user involvement in service by Increase service users’ involvement in service Elizabeth h4cPherson conducting visitors to Centre. delivery and improve disability awareness. Freeing Resource implications - production of guide book up of staff time. ilIld service user training - in-house. Links to Best Value: customer/citizen focus and soimd operatiorial maria~ement.
17
REVIEW OF COMMUNITY CARE ARRANGEMENTS
LEAD OFFICER : DAVID SULLIVAN
Review Brief: to undertake an over-arching review of the current planning, development, management and delivery of community care in Moray, in order to provide a coherent framework for individual reviews of the various elements of the service and enable integrated implementation of their recommendations.
(9 to evaluate the quality and effectiveness of community care services in Moray, against the objectives of the Community Care Plan, through a systematic process of individual service/activity reviews within the Best Value Framework:
Domiciliary Care Services for Older People Community Alarm Service Joint Commissioning Care Management Services for People with Learning Disabilities Mental Health Framework Occupational Therapy Services for People with Physical Disability
to ensure that the outcome of these reviews shapes the future direction and delivery of community care services in Moray in a coherent way.
(iii) to identify the strengths and weaknesses of community care services in general from the point of view of customers, particularly where more than one element of the service is involved
(iv) to publish equitable eligibility criteria for all community care services which are clear and understandable to customers
(v) to review the current charging policy and develop a more integrated and equitable system based on needs as well as ability to pay
(vi) to ensure that community care services are accessible, flexible, responsive, equitable and seamless and to identify improvements in the service against these targets with customers
(vii) to review the arrangements for community care in the light of the current NHS reforms
(viii) to identify opportunities for the development of more effective structures, process, practice and procedures, with particular emphasis on greater integration between health and social care at both a strategic and local level
19 ; ;“Y 4 :.._,., \
,I* ^,’
to extend and strengthen joint commissioning and ensure that methods of _ -. service delivery are most effective to meet service objectives in relation to both quality and cost
to develop the Moray Community Care Plan in ways which make the information more accessible and understandable to users
to develop more effective ways of involvin,o citizens in the planning and delivery of ail community care services
to review the existing planning and management arrangements and explore more innovative approaches which minimise bureaucracy and duplication, by strengthening local planning and delivery, joint commissioning and citizen involvement
Review period: 1 September 1998 - 30 September 1999 Papers to ClMT : 14 October 1999 Report to Social Work Committee: October 1999
ACTIONS TIME ACTIOlV TABLE BY 1. Service Specification DSISCI JMC (0 Organise Options Day to scope the review and Oct/Nov 98 seek representation for planning group and customer panel (ii) Establish inter-agency Customer Local Planning Oct/Nov 98 Group to develop service specification and oversee review (iii) Establish Customer Panel to provide more Oct/Nov 98 comprehensive user/carer views . . . s. Aa: rL.w.!.a*.lc... I $.;a? :‘s\ , a i A J&g lo 1
1.3 Establish Cost of Service DS/S C/LPI AT (i) costs based on 1995-99 and 1999-2000 revenue Jan 99 Purchasing budget including unit costs Strat. Grp. (ii) establish costs of other services eg health and Jan 99 Local Scottish Homes Planning (iii) monitor costs linked to devolved budgets and Ott 98 - Group flexible care/support arrangements across all Mar 99 cae groups (9 review and compare unit costs of individual Ott 98 - community care services Mar 99 (v) establish internal/overhead costs for individual services Jan 99 (vi> review cost of services to customers and current Mar 99 level of subsidy. Develop equitable integrated charging policy based on level of need as well as ability to pay (v@ review current method and volumes of allocation Mar 99 of resources to meet needs at strategic and local level
3. Research Customer Satisfaction
(i) organise Options Day for customers and relevant Ott 98 DS/SC/ agencies JMC 00 establish Local Planning Group with customer Oct/Nov 98 “ “ involvement from all care groups (iii) establish Customer Panel Oct/Nov 98 “ “ (iv) Develop Customer Involvement Project in Sep 98- MM partnership with Age Concern Sep 99 (v) Focus surveys on customers of individual MW services i4 Organise further Options Day at mid-point of Mar 99 DSIS Cl review JMC 4. Analyse how competition would benefit service Local (i> evaluate current quality and costs against Ott 98 - Planning objectives Mar 99 Group (ii> analyse and evaluate providers Customer (iii) identify improvements for customers Panel (iv> review effectiveness of joint commissioning in Jan/Mar 99 External relation to quality and cost Evaluation (v> explore opportunities for greater integration of Mar/Apr 99 DMTI services in relation to both management and CCSGI provision GHBI Trust 5. Benchmark Service
(i> identify key services for benchmarking Ott 9% DSISC (ii) benchmark against other local authorities, Mar 99 LP/AT independent providers and other agencies 1 JCU (iii) benchmark infrastructure/planning arrangements -i against other authorities and other agencies (iv) make comparison of different service models Jan/Mar 99 JCU (v) cost/benefit analysis of service models LP/AT 6. Assessment of qualitv/performance
(i) establish quality standards and PIs against Sep 98 - mv strategic objectives and t‘argets June 99 (ii) monitor customer satisfaction (iii) evaluate quality, performance and value of Mar 99 External jointly-commissioned services Review. (iv) review effectiveness of performance across all Ott 98 - s C/IMW/l s1 service areas to ensure equity of access and June 99 line mgrs provision 7. Market Testing Mar 99 S CIAWIGL
(i) review current process of market testing and tendering (ii) determine which elements of the service would benefit from market testing 8. Compare against 3 vear budget plan Jan/Mar 99 DS/SC LP/AT (i) make assumptions about 3 year revenue budget PSG (ii) Snategic Agts with GHB already outline future transfer of resources (iii) Continuous review of fmancial projections against key objectives (iv) Projection of future needs based on demographic and survey information and forecast impact on budget (v) Review effectiveness of financial planning across agencies involved in community care and explore opportunities to share costs OPTION APPRAISAL (i) to be undertaken as part of review process
DS David Sullivan LP Lorraine Paisey SC Sally Chisholm AT Aileen Taft JMcC Jillian McCallum M lb1 Mike Martin Dh/lT Dept Management Team CJU Joint Commissioning Unit lwv Mike Whelan GL Gordon Lindsay AW Alistair Watt PSG Purchasing Strategy Group CCSG Community Care Strategy Group
22 COh1MUNITI’ CARE ARRANGEMENTS
SEX VICE IMPROVEMENTS 1999-2000
Service Improvement(sl Outcomes and Links to Best Value
.4dministration Develop a clear, concise charging policy: admin and Equitable service to customers and their families. Aileen Toft finance staff involvement. Links to Best Value: soltnd strategic and operational Training on policy - in-house. management; customerlcitizen fouls. Area Teams: All I-lousing and Agree delegated process/procedures to area SW and To respond rapidly and flexibly to small number of Social Work Teams Hsg teams to respond flexibly to small group (5) of customers who do not accept services as currently difficult and vulnerable customers who require delivered. Mike h4cClafferty support. To assist inter-agency customer local planning Resources proposed: E2,OOO - Elgin SW Team; group (Action Plan Service Spec) and advise OII El ,000 each of the others. Resources via current range of flexible options for this group. staff resources in SW and Hsg teams. Training: understanding of range of needs and Links to Best Value: soled operational management housing legislative responsibilities. and custonierlcitizen focus. Area ‘Teams: Buclcie Identify within the Buckie team, a worker who will Enable a generic service to be given. Socinl Work Team keep abreast of developments in areas other than Trisha Hall child care. Links to Best Value: customerlcitizen focus and sound onerational rnanaPement. Clarify responsibilities Social Work/Care Links to Best Value: solrrld operational management Management in assessment of vulnerable adults. and clutomcrlcitizen foclu.
Protocol will require some mgmt time.
23 Capital 6c Revenue Programmes Improve timescales for disabled adaptations in Links to Best Value: sot~i operational marlagement Dougie h4cIntyre private and public sectors. and customer/citizen foclls Resources for setting up contracts/procedures and possible equipment storage - via HRA or non HRA general services. Possible fee savings. Care Management (GP Linked) Redesign Common Needs Assessment Form on Produce a form which can be used by other Kate Sanderson Word template for direct access by care managers disciplines involved in assessments, including health and others. professionals and which reduces need for user to provide same information more than once.
Links to Best Value: sound operational management and crt.stomerlcitizen foclu. Community Al:irni Improve operational practices and procedures:- Improve efficiency of response and regular testing Susan Anderson standard response procedure, system for testing of units. Improved awareness of procedures will dispersed alarms, protocol with henlLh staff over reduce delays in discharging people into discharges, improved forms/leaflets. community.
No resource implications. Links to Best Value: sorlrld operational management and customer/citizen focus. Contracts Develop contract process and procedures. Clarity over the contracting process: Gordon l,intls;\y No resource implications. Links to Best Value: sotmd operational rnana~:emetit, cit.stomerlcitizen,fociis.
24 Contracts Develop measurable quality standards in contracts Establish standards from which to monitor contracts. Gordon Lindsay along with care managers, lead officers and Quality Assurance Officer. Links to Best Value: sound operational Further training in benchm~arking, VFM etc needed. management; customerlcitizeri focus. Training budget. Criminal Justice Services Protocol for offenders with mental health problems. Increased efficiency in dealing with offenders who Alan Willis/Bob Muir have mental health problems, Need for ongoing training in this area of work. Links to Best Value: customer/citizen focl1.s and Implications for staff resources - ongoing budget sound operational management. negotiations with Scottish Office. Domiciliary Care Develop induction training package for domiciliary Trained workforce. Monitoring of performance Susan Anderson care staff in conjunction with Training Team. against agreed standards. Costs of paying staff undergoing training - expenditure within existing HC training budget. Links to Best Value: soled operational management and customerlcitizen focus.
25 Joint Commissioning Unit Evaluate unit’s first year: programme, operations Increase understanding of how JCU works and aim and management structure. Cost implications of the to improve efficiency and effectiveness. review are staff time, although outcome may highlight cost implications. Links to Best Value: sound operational management. Learning Disability Services Community Care Assessments for all adults with a Assessment will (1) lead to greater clarity on Mike Gray learning disability (300 people). To be undertaken customer satisfaction, and (2) allow development of by staff secondment with no additional resource database of services/resources to facilitate planning, impliciltions. Links to Best Value: sound strategic alzd operational management; customer/citizen focus. Learning Disabilily Services Implement new employment support strategy frame. Employment support strategy review to address Access Employment Support fragmented service which lacks corporate identity Ruth Brehen) Resource implications include additional staff, and leads to duplication in workload. office, stationery and admin support. Via ESF objective 3.4 funding and departmental staff. Links to Best Value: &stomerlcitizert focus and sound operational management. Learning Disability Services Service Review to consider feasibility of merging Shared premises would facilitate seamless service Community Learning Disability health and social work sections of the team into new provision, reduce duplication, enhance multi-agency Team - Mike Gray premises - working and free up office space in NG Street.
Premises to be identified by Health Svs - transfer of Links to Best Value: sotmd operatiojlal marlagemerlt team costs from NG Street to new premises. anal cltstomerlcitizen focus. l_earning Disability Services Review admin procedures within tei\In Links to Best Valtte: solold operatiorlal ma~lagement Community LD Team - Anne Slcc arici cit.stonierlcitizeri foctls. Learning Disabilily Services Revie\v processes for young people in transition Links to Best Value: sotmd operational management Communily LD Team - Anne Slee from child care to adult services. and citstomerlcitizen focrts Le‘arning Disability Services Access to an Elgin base with office, communal area Continuity of community-oriented service. Edgar Road Project and adapted bathroom. Ales Benvie I Resource implications: could be incorporated into Links to Best Value: sotmd operational management new build in new centre. and customerlcitizen focus. Learning Disability Services New projects for users - community based and Provide a service to users who have difficulty in Forres Outreach - Alex Benvie :local. A base in Forres. sustaining either half or whole day projects which Resource implications if new base is to be found, require travel - thus giving same level of choice. otherwise minimal. Some training would be Links to Best Value: cusromerlcirizen focus. beneficial (physio, speech therapy, ‘aromatherapy) Learning Disability Services Community based projects to integrate service users Beneficial for service users to be in community Hamilton Drive Centre into the community. rather than institutional setting. Ruth Breheny Initial funding to set up community-based service. Links to Best Value: clwtomerlcitizen focus. Learning Disability Services Implement Social Awareness Programme focusing Enhance quality of life for service users by Keith Resource Centre on housing, drugs/alcol~ol/healtlt. increasing their knowledge of wider issues. Alex Benvie Staff time cost - Health, Drugs and Housing. Links to Best Value: customer/citizen focus. Learning Disability Services Review suitability of current accommodation. Improve service for customers. t Respite Unit (Cullen) Links to Best Value: cttstomerlcitizen foclts Phyllis Bulmer Occupational Therapy Formation of guidelines and practice pack. Updated guidelines and written standards. Aileen Clark Printing costs and staff time will need to be met. Links to Best Value: soled operational mana~emenr l’l;~nning S: Development Input to 5 Best Value Service Reviews, particularly Links to Best Value: sound strategic, financial and h4ike Whelan re benchmarking, researching customer satisfaction operational management; customer/citizen focus. :und setting of standards. Promote council’s standards for residential care. Recognition of council’s standards. Encourage use of inspection reports by departmenta 1 Inspection reports accessed more widely Slilff. I_L No financial implications. Links to Best Value: cttstomerlcitizen .foclts.
27 ‘I’rnining Team (Sot \Vork) I Staff development through SVQ training. Address lack of relevant training in some areas (eg Sue Keith Develop training courses - eg induction prog. domiciliary care) - improve service to customers. Closer monitoring of budgets to target service more effectively. Links to Best Value: sotmd operational management, custonierfcitizen focus. Costs: external training providers (eg first aid, lifting and handling) and costs of staff cover for in- house courses. Some costs covered by Specific Grant. Possible savings by effective targeting of training and generation of income by selling places on in-house courses to independent sector groups.
28 py$~;~- 32 DRUG AND ALCOHOL SERVICES AND DRUG ACTION TEAM
LEAD OFFICER: MIKE MARTIN
Review Brief:
1. To review the implementation arrangements for the 1999-2000 Moray Drug Action Strategy (endorsed November 1998).
3 I. To review the service plan and priorities for the Drug and Alcohol Team, in light of the Moray Drug Action Strategy.
3. To review the effectiveness of the inter-agency Moray Drug and Alcohol Service in light of agreed service objectives and integrated approach.
Timescale:- February 1999-August 1999
ACTIONS TIME- ACTION TABLE BY 1. Service Spec
Set down aims, objectives, methods and targets for the D Jan/Feb 99 BD/‘MM/ & A Service, in light of the Drug Action Team strategy. MP
Negotiation on integrated service specification with Jan/Feb 99 BD/JC Health Services and voluntary Sector 2. Establish cost of service
Set down cost of Council Drug and Alcohol Service and March 99 BD/JC ~- resources from Health Service - Voluntary Sector 3. Research customer satisfaction BDIAWI 1. Consider how best to assess service user,ex service April MP user, and potential service user views on services 2. Undertake evaluation of service user and other views ApriVMay CL (e.g., via survey, or in depth interviews, or user panel etc). 3. Canvass views of referral agencies re: access to May/June ” service and quality of service
4. Analvsis of how competition would benefit service
1. Consider options for alternative service providers [no obvious alternative providers] May
5. Benchmark Service AW/BD
1. Identify Drug and Alcohol Teams in appropriate LA’s May to act as Benchmarkers.
2. Undertake a Benchmark exercise June/July
6. Assessment of qualitv/performance AW/BD/ MP 1. Establish performance indicators Jan/Feb 2. Monitor performance against indicators July/Aug 3. Evaluate feedback from customer Satisfaction and May/June :eferral agencies 4. Identify areas for improvement
7. Market testing
See 4 above
3. Compare a,aainst 3 vear budget plan. AW/BD/ 1. Evaluate spend against budget for 1996/7 and 1997/8. April/May MP
?. Consider budget issues for future service July MM
\ 30 MM/ A W/ OPTION APPRAISAL (alternatives to existing service BD provision can be investigated in conjunction with the review: ie cost/benefit analysis of alternatives, but full option appraisal cannot be carried out until the end of the review.) June/July 1. Consider ways of providing service (e.g. 3 x separate teams, or service commissioned via single agency) July/Aug 2. Evaluate alternative delivery mechanisms
BD Blair Dempsie JC John Cosgrove A W Alan Willis MM Mike Martin MP Moiru Patrick
31 4 PRIVATE SECTOR HOUSING GRANTS SERVICE
LEAD OFFICER: IAIN TERRY
Review Brief:
1. To review the Housing Grants service in the light of revised policy and strategy; to identify the best means of ensuring their implementation. 2. To gauge customer satisfaction with the service 3. To agree service standards 4. To review eligibility criteria 5. To identify the costs of the service 6. To consider alternative ways of delivering the service.
ACTIONS TIltfE- ACTION BY TABLE
l.Draft Service Spec 1. Review House Condition Survey results 1. January 99 1. JA/IT/AW 2. Considertargets for outcomes 2. February 99 2. AW/IT/JA 3. Eligibility criteria 3. March 99 3. JA/IT 4. Information to customers 4. April 99 4. JA/IM/MB 5. Procedure 5. April 99 5. JA 6. Turnover ofgrant applications 6. April 99 6. JAfMW 7. External services,e.g. from Legal & Admin 7. SeplOct 98 7. GG
2. Establish cost of service 1. Establish current costs 1. April 99 1. L, Paisey & JA
33 3. Research customer satisfaction -T 1. Design Survey 1. August 98 1. JAfIX 2. Design ongoing service satisfaction questionnaire ;:3 Sep 98 98 2. J/4fIWvlh 3. Send out Postal Survey Sep 3. JA 4. Collate Survey Forms 4. Sep- Nov 98 4. MW/GF 5. Survey Analysis 5. Dee 98 5. MW/JA 6. Report to DMT 6. Jan 99 6. IT 7. Report to Committee 7. Mar 99 7. IT
4. Analvse how competition would benefit service 1. Grants Work 1. 1. (a) Review competitive pricing procedure (a) April 99 (a> JA/IT 2. Service -.? I.3 (a) Examine e,xisting procedures & costs (a) April 99 (a> IT/JA/
(b) Consider whether the service can be extemalised (b) May 99 (b) :;AW
5. Benchmark Service 1. Consult and compare with other authorities 1. April/May 99 1. JAIMW (a) Costs/service/performance 2. Compare cost of grant and non-grant works in Moray 2. April/May 99 2. JA
6. Assessment of qualitv/performance 1. Are we meeting the service spec? 1. March - May 1. MW (a) Identify Performance Indicators 99 (b) Monitor Performance against targets (c) Results of Customer Satisfaction Survey 2. Assess access to information: review information . hlay 99 2. ~lw/rii packs .- 3. Identify areas for improvement 3. May99 ;. MW/IM/IT
7. Market testino, 1. Grant Work: Ongoing - all subject to competitive . . oc: 98 to 1. JA pricing: Monitor hlay 99 1. Service !. June 99 !. MWIJA (a) Assess results of benchmxking (b) Compare with akemative service provision
3. Compare against 3 vear budpet plan. 1. Compare budget with Housing Plan . Ivlay 99 1. IT !. Compare spend with budget !. Ongoing !. IT 9. OPTION APPRAISAL 1. Consider in light of above 1. May/June 99 1. IT/J (a) Service by other department: Benefits? S ummersl 6) Consider ED&P DMT/CtilT 6) Consider Environmental Health
JA John Anderson IT Iain Terry A W Alistair Watt IM Ivor McIvor MB Margaret Brown MW Mike Whelan GG Gillian Grant LP Lorraine Paisey TS Tom Snokvling GF Gillian Ferguson DMT Dept Management Team CMT Central Management Team
35
REVIEW/DEVELOP TENANT PARTICIPATION STRATEGY
LEAD OFFICER: MIKE McCLAFFERTY
Review Brief:
0 To review the current Tenant Participation Strategy and measure the effectiveness and progress to date against the objectives set out in Housing Committee report in June 1998. l To review desired outcomes. l To examine effectiveness of current mechanisms (e.g. Core Group meetings, surgeries) to achieve these . To develop the strategy to achieve greater involvement and empowerment of tenants in the management of the housing stock. l To identify issues to provide a focus or catalyst for greater tenant involvement 0 To measure customer satisfaction from 1994 Baseline Survey and develop brief for 1998 survey l To propose new service standards and mechanisms. 0 To identify gaps in service delivery for specific and measurable improvements . To identify training needs for Area Team staff and tenants
ACTIONS TIME- ACTION BY TABLE l.Draft Service Spec l Outline draft spec l April99 MNcCICJ l Discuss with Area Managers and Tenants Core To Group MMcc l Amend as required May 99 M?vlcC l Develop methods of tenant participation * June 99 M.7vfcCfil3lcL l Develop proposals for greater involvement of l June-Aug 99 M&lcC/ tenants groups at local level h5vfcL/AH?fIs
2. Establish cost of service l Gather costing information . April99 rv&lcC & l Estimate future costs once draft proposals drawn s m Sept 99 ?vlNcL UP
-
3’7 3. Research customer satisfaction l-
l Develop survey brief for satisfaction survey . Ott 98 blMcC/CJ l Discuss with Core Group . Nov 98 MMC c/MMc L
l Appoint survey consultants l Nov-Dee 9s CJ MMcc/MMcL l Inform tenants l Dee 98
l Undertake survey l Jan 99 MMcC/CJ l Survey Report . Feb 99 MMCC l Discuss with Tenants’ Groups . Mar 99 M.McC/CJ . Report to Committee l 1Mar 99 MMCL l Implement post-service continuous survey l Apr 99
4. Analvse how competition would benefit service Consider whether any benefits in using external . Ju199 MMCC agency to develop tenant participation, e.g. TPAS, TIS, TIGHRA 5. Benchmark Service MMC c l Agree members of benchmarking club . Jan99 l Compare tenant participation methods and . Mar-Ap1-99 strategies in other LA’s
6. Assessment of quaiitv/performance m Assess existing level of participation m Discuss with tenants groups
7. Market testing ) Only if it is decided to be a benefit to use external MMCCICJ consultants, then put development work out to 1 Aug 99 competition
3. Compare against 3 vear budget plan. ) Estimate 3 year budget 1 Compare spend with budget
). Option Appraisal .-
l Consider options in conjunction with tenants 1 Sep 99 M?&c groups, once alternative proposals are drawn up
l Report to Committee Ott 99 M.Mcc
CJ Catherine Jamieson MMCC Mike McClafferty MMCL Martin McLeod AAHMs Area Housing Managers
38 TENANT PARTICIPATION STR4TEGY
SERVICE IMPROVEMENTS 1999-2000
postage to be funded via Tenant Participation customer care/public information.
Area Teams: Keith Housing Team Rae h?unro correspondence (eg letters with contract reduce queries/requests for clarification. This will informittion). Expenses via Tenant Participation also have impact upon customer care/public
Links to Best Value: crrstornerlcitizen focus and
39 COMitl UNITY SERVICES DEPARTMENT - THREE YEAR PROGRAM+IE OF BEST VALUE SERVICE REVIEWS
SERVICE REVIEW COMPONENTS 1999- 2000 Housing Service I 1. Housing LManagement 2. Direct Labour Organisation 3. Private Sector Housing * Grants Communitv Care x 1. Services for Older People (1998-99) I.3 Domiciliary Care (1998-99) 3. Community Alarm (1998- 99) 4. Mental Health Services k 5. Learning Disability Services (1998-99) 5. Drug & Alcohol Services k 7. Physical & Sensory Disability Services 8. Occupational Therapy 9. Care Management k Criminal Justice (1998-1999) x Child Care Services x 1. Fostering/Adoption Services i: L.? Area- based services i; 3. Child Protection * 4. Children with Disabilities * 5. Services for 16-24 year olds (Throughcare) 5. Residential Services Customer Care and x ?ublic Information i 1 . Tenant Participation Arrangements 2. Public Information IMethodsRCledia 3. Complaints Procedure 4. Customer Care Policy 5. Review of Area Teams
40 SERVICE REVIEW’ COivlPONENTS 1999- 2000- 2000 2001 Regulatorv, x Procurement and 1. Registration & Inspection k Oualitv Assurance (incl under 8s) Services I.3 Quality Assurance * 3. S.W. Services Procurement * 4. Joint Commissioning * 5. Cap it al Programme Procurement & Monitoring (1998-29)
Transport x
-X = date of overall service review
* = date of component review
41 Appendix 2 GLOSSARY OF TERMS
Background information, Accounts Commission documents and Government circulars on Best Value may contain a considerable amount of jargon. This glossary is intended to explain some of these terms and concepts.
Accounts Commission
“A statutory, independent body which, through the audit process, assists local authorities and the health service in Scotland to achieve the highest standards of financial stewardship and the economic, efficient and effective use of their resources. Its five major responsibilities are:
3 the external audit 3 follow-up areas of concern identified through the audit 3 reviewing the management arrangements which the local authorities have in place to achieve value for money 3 undertaking national value for money studies to improve local government, economy, efficiency and effectiveness and > issuing local authorities annual directions which set out the range of performance information they have to publish.”
Benchmarking
The process of identifying, comparing and learning from the best practices of others in order to effect changes which will lead to improvements in our own service delivery. This may involve comparing performance data, cost or the processes which are followed in delivering a service. Benchmarking may focus on particular elements of a service or may look at a service in its entirety. It may therefore be undertaken in partnership with local authorities, or with other organisations within the public, private or not-for-profit sectors.
Best Value Regime (BVR!
Introduced by the Government in 1997 as an alternative to extending CCT, the BVR has been developed as a means of encouraging councils to demonstrate the effective use of their resources and to build in continuous improvement. Unlike CCT, the BVR covers & services provided by the local authority. Each council must submit annual Implementation Plans setting out how it intends to achieve best value: these are evaluated by the Scottish Office and the Accounts Commission. Failure to meet the required standards could lead to the removal of Best Value ‘status’ from an authority and the re-imposition of CCT. The four essential elements of Best Value are: (1) sound governance; (2) performance measuring and monitoring; (3) continuous improvement and (4) three-year budgeting.
42 Best Value Service Review
A major element of Best Value is the requirement to undertake a formal review of & council services over a rolling three-year programme. Each Review must cover all (or most) of the following:
> service specification 3 ascertain cost of providing the service 3 research of customer/user satisfaction 3 analyse ways in which competition could be beneficial 3 benchmark against other organisations 3 assess the quality and performance of the service 3 market-test, if appropriate > carry out option appraisal.
Compulsorv Competitive Tenderine (CCT)
The legal requirement to put a particular local authority service out to open tender. Within the Community Services Department, council house maintenance/repair services were subject to CCT legislation in 1996-97 when the in-house Direct Labour Organisation (DLO) won the three-year contract. The Government has not repealed this legislation and CCT could be re-imposed for all or any council service if local authorities fail to demonstrate to the Scottish Office that they are providing Best Value and Value for Money.
Continuous Improvement
The purpose of Best Value Regime and rolling programme of Service Reviews, is to bring about improvement in the cost/quality balance of council services. Continuous improvement is a key principle of Best Value and the department’s Key Service Plan is intended to demonstrate its commitment to this.
Implementation Plan UP)
Each council must submit an annual Implementation Plan to the Scottish Office. This sets out the council’s key objectives and targets for implementins and demonstrating Best Value in the following year. If this Plan is accepted by the Scottish Office, the council will retain its exemption &om CCT for another year.
Kev Service Plan
A Plan produced by each council department setting out what actions it will take over the forthcoming year to improve its services, as required by the Best Value Regime.
43 Management Arrangements Audit
An external audit undertaken by the Accounts Commission to check the extent to which planned improvements in management have been implemented by councils. Each department must complete a proforma stating what it has or has not achieved. The council must make evidence available to support these statements.
Market-testing
Investigating whether there are alternative service providers available and willing to provide services; testing our own services (or other existing services) against the alternative providers by direct comparison of costs and services or testing by competitive tender.
Option appraisal
Consideration of the viable options to providing services following a review of required services. Consideration of different ways in which services can be delivered and taking into account all the implications involved with each option. Option appraisal can then lead to a decision on how and by whom a service will be delivered.
Performance Management and Planning (PMP)
Councils must, in future, focus on meeting customer and citizen needs while having regard to the cost and quality of their services. In essence this means addressing the following questions:
3 How do we know we are doing the right things? 3 How do we know we are doing things right - getting the best cost/quality balance? > How do we plan to improve? 3 How do we account for our performance? .-
This is done by:
> establishing clear standards/targets for each council service > identifying where and how improvements can be made > reporting on performance.
Public Performance Report (PPR)
Councils must in future focus on meeting customer and citizen needs while having regard to cost and quality of service. They must provide information that enables all stakeholders to hold councils to account for the way in which they have used public money - explaining in clear terms the choices that they have made. In future PPRs
44 must be published annually as part of the council’s planning cycle. The first prototype PPR must be submitted to the Scottish Office by the end of June 1999.
Service Specification
This is fundamental to any service review as it describes the nature and volume of the service, eg:
> What volume/type and range of services are provided > What level/quality/standards of services are required/provided
Three-Year Budgeting
The Scottish Office is moving towards 3-year budgeting for local government. Councils must therefore review their planning cycles to assist this process.
Value for Money Studv
Examination of sexvices, processes and systems in terms of achieving economy, efficiency and effectiveness.
45 LIST OF SERVICE IMPROVEMENTS: GROUPED BY TYPE
This list groups together service improvement proposals of a similar type so as to facilitate liaison or exchange of information between staff.
Improvements Proposed for Staff Training:
Admin & Finance: training of reception and front-line admin staff - information and eligibility criteria Area Team: Buckie Social Work: in-house training of Access Point staff Area Team: Buckie Social Work: local interagency/inter-dept trainin,o - awareness of child care issues Criminal Justice: links/joint training with addictions team Domiciliary Care: induction training package Training Team (S.W.): training, particularly of reception staff Training Team (S.W.): community care staff- extend SVQ
Improvements Proposed for Customer Involvement and Feedback
Area Teams: Keith Housing: local tenants’ newsletter Area Teams: Keith Housing: focus group to develop standard correspondence Area Teams; Keith Social Work: promote use of comments cards in Resource Centre Quality Assurance: promote customer care ethos Quality Assurance: develop range of methods of customer feedback Residential Homes - Older People - Bishopmill: management of change for residents - improve independent living ski..lls Residential Homes - Older People -Glenisla: monitoring service - feedback from customers, families & advocates Resource Centre: service user involvement in conducting visitors to centre -.
Improvements Proposed for Oualitv Assurance and Service Standards
Area Teams: Housing Operations: inspection of response repairs Care Management (GP Linked): quality assurance/accomplishments framework Contracts: development of measurable quality standards in community care contracts - QA officer, care managers, contracts staff and lead officer Criminal Justice: quality assurance questionnaire Registration & Inspection: promote council’s residential care standards Registration & Inspection: promote use of inspection reports by St&
46 4. Improvements to Public Information
Area Teams: Buckie Housing: information and advice service Area Teams: Forres Housing to update info leaflets for Tenants’ Handbook Capital & Revenue Programmes: information on housing improvement/estate upgrading programmes Capital & Revenue Frogrammes: leaflets on energy efficiency, repairs, upgrading contracts etc Community Alarm: leaflets, forms and advice Contracts: information service for all service providers Criminal Justice: promote service; update leaflets; use of press, intemet etc Learning Disability: CLDT team leaflet Occupational Therapy/Housing Grants: information leaflets Registration & Inspection: information leaflets
5. Operational Improvements
5.1 Policies. Procedures and Practice:
3 Acimin & Finance: staff involvement in development of charging policy > Housing/SW Area Teams: delegated powers re specific service users > Area Teams: Buckie Housing: delivery of customer care policies > Area Teams: Buckie Social Work: allocated officer for generic services 3 Area Teams: Elgin Housing: realign officers’ areas and improve duty provision 3 Area Teams: Elgin Housing: redeployment/use of support staff/site caretaker > Area Teams: Elgin & Lossiemouth Social Work: duty system 3 Area Teams: Forres Housing to update Procedure manual, SOR manual 3 Area Teams: Forres Social Work: duty provision 3 Area Teams: Keith Housing: work request procedures 3 Area Teams: Keith Social Work: protocol - interface with care management S Area Teams: Lossiemouth Social Work: workload management system 3 Capital & Revenue Programmes: reduce timescales for adaptations 3 Care Management (GP linked): improve assessment form 3 Community Alarm: improve operational practices > Contracts: develop contracts procedures 3 Criminal Justice: protocol - offenders with mental health problems @ DLO: update the stock control system 3 Housing Needs Section: review allocations policy; Letting Plans > Housing Needs Section: speedier issue of decision letters 3 Joint Commissioning: review programme, operations and structure 3 Learning Disability: ACCESS employment support strategy > Learning Disability: community care assessments 3 Learning Disability: CLDT: review admin procedures 3 Learning Disability: CLDT: review interface child/adult services 3 Occupational Therapy: review charging policy/procedures > Occupational Therapy: guidelines and practice pack ? OOHS: liaison with area teams > Residential Homes - Older People: Speyside - procedures 3 Resource Centre: introduction of appointments > Resource Centre: staff ID bo‘ard 5.2 Service Developments:
> Area Teams: Forres Social Work: Family Support Worker Service 0 Criminal Justice Service; introduce Drug Treatment & Testing Orders 3 Learning Disability: Forres Outreach and Hamilton Drive: develop community- based projects p Learning Disability: Keith Resource Centre: Social Awareness Programme & Learning DisabiLity: review of accommodation (CLDT, respite, Forres Outreach) > Learning Disability: review possible access to base in Elgin 3 Residential Homes - Older People: Glenisla : resources to provide a mini-bus > Resource Centre: computer resources
MgtB. October 1998 Dot Ref: c:\my documents\lcsp990@fiialdoc.
48
ITEM: 7
PAGE: 1
REPORT TO: SOCIAL WORK COMMITTEE ON 12TH NOVEMBER 1998
SUBJECT: PROJECT DEVELOPMENT & FUNDING SOURCES: SERVICES TO PEOPLE WITH LEARNING DISABILITIES
BY: DIRECTOR OF COMMUNITY SERVICES
1. Reason for Report
1.1 This report informs members of the Social Work Committee of the progress made in identifying funding sources for project developments in relation to services for people with disabilities and seeks approval for further projects which may be eligible for European funding.
2. BackrJround
2.1 This report provides an update of project developments considered at the Social Work Committee on 4’h June 1998 (Para 6 of minute refers) on Funding Sources for Project Developments.
2.2 In response to identified needs through the Grampian Wide Strategy Review and seminars held for adults with learning disabilities, their parents and carers, a number of projects have been developed, some which could access European Funding.
2.3 For these projects matching funding and support may be provided in the form of existing Moray Council staff and accommodation resources, thus absorbed within the current budget.
3 The Proposals
3.1 European Social Fund - Obiective 5b - Measure 2.1- TraininP & Skills Enhancement
Objective 5b funding is aimed at facilitating the general development of rural areas in the East of Moray. Two proposals have been submitted for the continuation of projects. ITEM: 7
PAGE: 2
3.1.1 Moran Desktop Publishing Proiect
ESF finding established the Moray Desktop Publishing project in 1996. The training for 14 participants has been delivered in an business environment and the project has provided a service to the local business community as a spin off from the training activities, through the production of small quantities, high quality colour publications ranging from leaflets, business cards to local guides. The demand placed on both the Desktop Publishing training and services exceeded the anticipated expectations and the project received fUnding to continue in January to July 1997 from LEADER II to bridge the overbid on the ESF measure. ESF fimding has been made available from August 97 to 31’” December 1998. The vocational part of the project has offered beneficiaries an opportunity to complete SCOTVEC modules in
l Office practice
l Introduction to the nature of business
l Desktop Publishing
3.1.2 To build on the success of the project in bridging an identified skill and service gap, an application for the continuation of the project for the years 1999 and 2000 has been submitted. It is planned to offer in addition to the Desktop Publishing training, a programme that will incorporate Website design and the use of the Internet, which will enhance participant’s chances to take up forthcoming employment opportunities. The proposed training programme will offer 14 participants 20 hours per week over a period of 46 weeks each year with a continuing structure of 13% Vocational Guidance and Counselling, 15% Theory, 72% Practical and Work Experience.
3.1.3 The total project cost is E 115,021.93 with 45% of the total cost requested from the European Social Fund Objective 5b. The 2 63,262.06 (55% of total costs) of matching tinding required from the Council is available by offsetting existing resources, which includes accommodation, maintenance, administration and management staff costs.
3.1.4 Communitv TraininP Proiect
The Moray Community Care Plan and Grampian Strategy Review provides a commitment to implement the Central Government policy on Care in the Community through a shift in provision of care from institutional to community models, with a substantial number of local workplaces being created. As this process will be a gradual tangent it is anticipated that there will be a demand for trained staff, with a sound range of practical work experiences and skills over the next number of years. In recognition of the local skills shortage, it is proposed to build on the success of the presently ESF fUnded Community Training project and provide fi_uther training opportunities in 1999 for local people to diversi@ and / or increase their skills to enter the forthcoming employment opportunities.
3.1.5 The project is targeted mainly at those who are either returners to work or presently undertake unskilled part-time work. The training package will provide 10 participants with an opportunity to complete GSVQ Level II Care, with a priority focus on care for ITEM: 7
PAGE: 3 people with learning disabilities. The project is directly linked to the local employment market, as the work placements are part of the integrated training package. Throughout the 44-week training course, 47% of the time will be based in day centres, projects and residential settings, providing the participants with a wide range of work experiences, essential to secure long-term employment prospects.
3.1.7 The total cost for the proposed project in 1999 is E 40880.47 with 45% of the total cost requested from the European Social Fund Objective 5b. The 2 22,484.26 (55% of total costs) of matching fbnding required from the Council is available by offsetting existing resources, which includes accommodation, maintenance, administration and management staff costs.
3.2 European Social Fund - Obiective 3 Prioritv 4 - Enhance the capacitv for communitv development
Objective 3.4 tinding is available for capacity building measures, which will assist community groups and the voluntary sector to support those, who are presently excluded from the labour market such as people with disabilities.
3.2.1 Access Proiect The project, considered at the 4ti June 1998 Social Work Committee, has been successfblly piloted with ESF Objective 3.4 finding. For the capacity building measure of the project a consortium has been formed consisting of representatives of the Voluntary / Community sector, College and Community Services Department staff The overall aims and objectives of the ACCESS project are to formalise and develop partnerships with Community groups, which will:
l develop and co-ordinate a new system of employment support for the disabled
l use a bottom up approach to develop joint strategies and actions
l reach target groups through new outreach measures
l promote effective community development, through providing information, advice and training
l enable the voluntary and community sector to access European and other fimding through training, support and development work
3.2.2 Since the setting up of the present Access consortium network additional community groups have joined and the project plan for the 1999 application for tinding has been developed out of the activities undertaken in the pilot scheme and their evaluation, which includes ;
l The setting up of an information system - A temporary Information Officer post has been created to co-ordinate and gather information. The evaluation of the new system showed the need for joint publicity on services and support available for the ultimate beneficiaries, people with a disability.
l Publicity - It is planned to create additional publicity using the Internet and provide workshops on how to create publicity, dealing with the media. ITEM: 7
PAGE: 4 l Setting up of Drop-in facilities - The establisment of Moray-wide evening provision for adults with a learning disability has been very successful. In the continuation of the drop-ins, it is envisaged, in direct response to the identified needs, that some of the activities will be led by the Voluntary sector.
l Piloting a mentoring scheme - The initial training seminar showed a need for finther series of training and information events on mentoring, with the overall aim of providing mentoring to people with a disability.
l Fundraising’ & Information seminar - It is planned to hold a Fundraising seminar in November / December. In the development of this event a need from the Voluntary sector has been identified for additional publication on locally available tinding, advice and support measures. A fin-ther Options day - Information seminar is proposed for February / March 1999.
l Educational guidance - A Moray-wide educational guidance and counselling roadshow took place in September. It is proposed to provide tirther educational guidance at a planned information seminar with individual consultations sessions being available.
l Project developments - So far three partnership projects have been developed for the ultimate beneficiaries group as a direct result of the Access project. Applications for tinding are presently pending.
l New employment support structure for people with a disability - Following an intensive consultation process, a newly developed employment support structure for people with a learning or physical disability will provide a one-stop, Moray- wide co-ordinated approach. The new system will provide easy access to employment support for people with a disability, the Voluntary sector, training providers and employers. Following the initial piloting it is envisaged that this system will be formed into an overall strategy.
l Development of transnational links - Initial links with Ireland, Cork have been formed with a view for the setting up of an exchange of immediate and ultimate beneficiaries to explore new approaches in combating long-term unemployment through a variety of support measures,
l Evaluation Skills Strategy -The Access project network has identified the need for a series of training workshops for Community groups and staff on the Scottish Office supported ‘Five Nations Evaluation Skills Strategy’, which will enhance an equal partnership status in the development, delivery and monitoring of projects.
3.2.3 Should tinding become available for the continuation of the Access project, it is proposed that the temporary post of Information Officer would be extended until 3 1”’ December 1999. The post holder’s role will continue to implement an information service for service users and carers, in direct response to the views of users and carers expressed at the Options Day and the piloting of the Access programme. The post is entirely financed through European tinding and line managed by the Social Work Section’s Operational Service Manager. As there may be a delay in the decision- making process and notification by the Scottish Office, regarding the success of the fUnding bid, it is proposed, if necessary, to underwrite the post of Information Officer, for up to two calendar months, at a cost of 22,671, including employers costs, through Resource Transfer from Grampian Health Board which has been made available for the development of community-based day service projects as part of the Strategic Agreement with the Council. ITEM: 7
PAGE: 5 development of community-based day service projects as part of the Strategic Agreement with the Council.
3.2.4 Whilst it is likely that this project will receive continued ESF funding, in the event that the application for continuation of the Access Project is unsuccesstil the post of Information Officer will be discontinued and the activities of the project restricted.
3.2.5 The total project cost is 2 87,766.- with 50% of the total cost requested from the European Social Fund Objective 3.4. for the above outlined sections. The f. 43,883 ( 50% of total costs) of matching tinding required from the Council is available by offsetting existing resources, which includes accommodation, maintenance, administration and management staff costs.
3.3 European Social Fund - Obiective 3, Prioritv l- Pathways to Employment
Objective 3.1 tinding is available for training measures, which will facilitate the integration of long-term unemployed people, who are presently excluded from the labour market through disadvantages such as disabilities, literacy and numeracy difficulties etc.
3.3.1 START II ( Special Traininn And Retail Trading) The original START project was piloted with ESF Objective 3 tinding in Buckie in 1997. The scheme has been continued has a partnership project with the Voluntary Sector, Moray Reach Out, and secured National Lottery Charities Board funding until the year 2000. Due to the success and demand placed upon the project in Buckie an application for ESF Obj. 3 tinding has been submitted to pilot a START branch in Elgin.
3.3.2 The proposed project will be set up as a retail training shop in haberdashery & crafts, providing 12 adults with learning disabilities with literacy and numeracy training in a practical work environment, whilst having a direct link to the public I community and potential employers. In addition to providing pre-vocational training, practical work experience and guidance, all beneficiaries can complete SCOTVEC module in Service Skills - Retail.
3.3.3 Should fi.mding become available it would give the Needlepoint project, presently fi_mded by Leader II, considered at the 4* June Social Work Committee, an ideal base to continue their activities beyond the initial 10 months funding.
3.3.4 The total project cost is 240,844, with 45% of the total cost requested from the European Social Fund Objective 3.1. for the above outlined sections minus estimated income to the project of Z500. The 222,464 (55% of total costs) of matching finding required from the Council is available by offsetting existing resources, which includes accommodation, maintenance, administration and staff costs. ITEM: 7
PAGE: 6 3.4 Leader II - Furniture Restoration Proiect
An application for the setting up of a vocational training project with Leader II funding (Links between Actions for the Development of Rural Economy, part-funded by the European Union, other local agencies and administrated through Moray Badenoch and Strathspey Enterprise) has been successful.
3.4.1 This pilot scheme takes a new approach in providing training in the skills of furniture restoration and repair, whilst meeting a growing demand for this service in Moray. The project is aimed at 8 adults with learning difficulties, who are presently excluded from the labour market through their disabilities, lack of local supportive training provision, work experience and any vocational qualifications. The vocational training project is based at the Moray Furniture Store, which is specialised in providing tirniture for people in need. The training will be run over 46 weeks in a business / workshop environment, giving participants an ideal supportive practical work base, whilst having a direct link to the public / community. The work experience will enable participants to make informed training choices, whilst gaining practical skills using commercial machinery and tools. The individual tailored training programme will contribute to achieving vocational qualifications (SCOTVEC module in Working with Wood or Furniture: Preparation of surfaces.) and allocates 15% to vocational training, 65% to practical work experience training and 20% to pre-vocational guidance and counselling.
3.4.2 The total project cost is 2 27969.78 with 45% of the total cost (g 12586.40) met by Leader II to finance the Moray Furniture Store Trainers, use of machinery, material and college costs. The 2 22,464 (55% of total costs) of matching fimding required from the Council is available by offsetting existing resources, which includes travel, Support and Outreach staff costs.
3.5 Rural ChallenPe Fund - Wood Recycling Proiect
The Wood Recycling Project, considered at the Social Work Committee on 20th March 1997 (Para 9 of minute refers), has been developed and an application had been submitted to the Rural Challenge Fund in November 1997. The bid had been successtil through the scoring stage, but due to limited funding, placed on a reserve list:‘ The Scottish Office, Agriculture, Environment and Fisheries Department have invited applications for the Rural Challenge Fund 1999 - 2000 and a new bid has been submitted.
3.5.1 The project is an innovative partnership development between The Moray Council, Community Services Department, the Voluntary Sector -Lochpark Challenge, Banff & Buchan College and the Private Sector - Lochpark Rural Skills Centre. The pilot scheme will provide vocational training and work experience for 16 adults with learning disabilities, whilst recycling timber - surplus forest branches and household Christmas trees. The recycled wood chips will be forwarded for creating forest paths as part of an integrated plan of restoration and reinstatement of the Community Woodland and the national plan of creating a Millennium Forest. ITEM: 3
PAGE: 7 3.5.2 The total project costs for over 2 years is f110,520.- with 249,630. - requested from the Rural Challenge Fund. The Matching Funding of f. 60,890.- consists of 2 7000.- Further Education, i lO,OOO.- Private Sector, f 43890.- required from the Council which is available by offsetting existing resources of Support and Outreach staff costs.
3.6 Aluminium Can RecvclinP Proiect
A partnership project between Moray Reach Out and The Moray Council, Community Services Department is in the development stage. The aim of the project is to provide vocational training for 10 participants, whilst recycling Aluminium Cans. It is planned, should tinding become available, to pilot the project in Buckie. The project will complement The Moray Council’s overall commitment to recycling and it is envisaged to develop the project in the long term on a Moray-wide basis.
3.6.1 An application to the Lloyds TSB Foundations trust is in the preparation stage, with Moray Reach Out being the lead applicant. The Moray Council, Community Services Department support for this project is in the form of a secondment of a support worker. The worker is presently working with the service users, who have been part of developing this pilot scheme.
4. Financial ImDlications
4.1 In the past the Community Services Department of the Moray Council has been successfbl in attracting additional fimding to enhance and develop new service projects, using existing resources to meet matching tinding requirements. The new proposals outlined in this report are aimed to maximise existing resources, stimulate new developments and improvement of services.
4.2 For all project proposals matching fUnding through staffing support, administration, accommodation costs are already available within the Councils existing resources as outlined above and there are no new additional Council subsidies required.
4.3 The summary of costs for all the projects outlined in this report are as follows: Moray Desktop Publishing Proiect 2 115,021.93 European Social Fund E 5 1,759.87 - 45% The Moray Council f 63,262.06 - 55% Communitv Training Project ;E 40,880.47 European Social Fund jZ 18396.21 - 45% The Moray Council E 22484.26 - 55% Access Proiect: s 87,766.OO European Social Fund g 43,883.OO - 50% The Moray Council f 43,883.OO - 50% START II: & 40,344.oo European Social Fund i 17,880 - 44.32% The Moray Council 2 22,464 - 55% Revenue jz 500 - Furniture Restoration Prqiect: f. 27969.78 Leader II f. 12586.40 - 45% ITEM: 1
PAGE: 8 Revenue % 500 - Furniture Restoration Project: i 27969.78 Leader II 5 12586.40 - 45% The Moray Council f. 15383.38 - 55% Wood Recvclina Project: &110520.- Rural Challenge Fund 2 49630.- The Moray Council 2 43 890.- Private Sector s 10000.- Further Education E 3600.-
5. StafflnP Implications
5.1 It is proposed to continue the post of Information Officer for the Access project described in paragraph 3.2.1 on a temporary basis until 3 1” December 1999 subject to the likely continuation of ESF Objective 3.4 funding. The post is currently filled on a temporary basis at the grade of AP2, as assessed by the Personnel Services Section of the Council.
6. Environmental Implications
6.1 There are no environmental implications.
7. Consultations
7.1 Consultation has taken place with the European Programme Co-ordinator and the European Unit in relation to the European projects.
7.2 Consultation has taken place with the Chief Environmental Protection Officer in relation to the proposed recycling projects.
7.3 Consultation has taken place with Voluntary Organisations, Service Users, staff and training providers in relation to the projects described in paragraph 3 above.
7.4 Consultation has taken place with the Joint Commissioning Unit in relation t6 the Access project and the possible temporary finance of the post of Information Officer. The Joint Commissioning Unit is in agreement with the proposal.
7.5 Consultation has taken place with Colin Pettigrew, Accountant - Finance and Information Technology Department, Katrina McGillivray , Assistant Personnel Services Manager - Corporate Services Department, regarding the preparation of this report and both are in agreement with the proposals.
8. Recommendations
8.1 It is recommended that Social Work Committee: ITEM: 7
PAGE: 9 b) Approve the submission of project applications as described in paragraph 3 of this report with no additional funding being required.
4 Continue the temporary post of Information Offker until 31” December 1999 subject to continued European funding.
4 Refer this report to Policy and Resources Committee for consideration. e) Approve the continued development of projects and applications for funding, where matching funding and support can be met out of existing resources.
Author of Report: Reni Milburn, Assistant Manager, Service Development Background Papers: Seminars evaluation reports, applications and tinding submissions on file in the Community Services Department. Ref. :
Signed: 2, &- d
Name: David Sullivan Designation : Chief Social Work Officer
ITEM: (a
PAGE: 1
REPORT TO: HOUSING COMMITTEE ON lo=* NOVEMBER 1998 AND SOCIAL WORK COMMITTEE ON 12TH NOVEMBER 1998
SUBJECT: BID TO THE SCOTTISH OFFICE FOR ROUGE SLEEPER INITIATIVE FUNDING AND BID TO EUROPEAN SOCIAL FUND FOR FUNDING FOR TRAINING FOR ROUGH SLEEPERS
BY: DIRECTOR OF COMMUNITY SERVICES
1. Purpose of Report
1.1 This report informs Housing and Social Work Committees of:
4 the bid to The Scottish Office under the Rough Sleepers Initiative;
b) the bid to the European Social Fund for finding for a training initiative for Rough Sleepers.
2. Backpround
2.1 The Scottish Office provided The Moray Council with tinding of 235,500 in December 1997 to recruit 1.5 stti to carry out research into rough sleeping in Moray over a 12 month period.
2.2 The results of this research to date is included in APPENDIX I of this report : the bid to The Scottish Office. Details of the research were also reported to Housing Committee on 2Sti April 1998 (Minute Ref 11 refers).
2.3 Over the last 8 months a Steering Group has been overseeing the work under this initiative and representatives have included :
Community Services Department : - Housing Needs - Planning & Development - Rough Sleepers Initiative staff - Drug and Alcohol Team MVSO Langstane Housing Association Grampian Housing Association Chanonry Centre ITEM: 6(
PAGE: 2
2.4 The Steering Group developed an inter-agency strategy for Rough Sleeping from which has developed the bid to The Scottish Office under the challenge fUnding for the Rough Sleepers Initiative. The bid is attached at APPENDIX I of this report. The bid had to be with The Scottish Office by the 15’h October 1998. This is the final round of bidding for 215m that the government has made available under this initiative to eradicate rough sleeping in Scotland.
2.5 Having uncovered a much more significant prevalence for rough sleeping in Moray than envisaged, putting the Challenge Fund bid together has been diff<. This is because some of the original proposals envisaged would have involved committing the Council to substantial additional revenue fi..mding beyond March 2000. It is difficult to commit the Council at this stage to additional revenue tinding because of the uncertainties around the revenue budgets at that time.
2.6 One of the major difficulties Rough Sleepers have is unemployment which can be a barrier to obtaining accommodation. European Social Fund Finance is available for training for homeless people which also allows for training in personal skills. The availability of a training package which could help Rough Sleepers and the residents of the Chanonry Centre move towards independent living was identified as being a very useful addition to the Moray Strategy and an application was made for tinding for the calendar year 1999.
2.7 The Moray Council’s matching tinding for the European Social Fund bid is from existing resources.
2.8 If both bids are successfU1, they will complement each other to provide a quality service to alleviate the problems of Rough Sleeping in Moray. They can, however, operate independently if the tinding application for one is rejected.
2.9 In developing the strategy and bid, full recognisance of future funding difficulties have been acknowledged.
3. The Outcome of the Research
3.1 The outcome of the research is detailed in the Challenge Fund bid, at APPENDIX I.
4. The Strategy
4.1 Fuller details of the strategy are available in the Challenge Fund bid. It contains 5 key elements :
l Identifying need through a single assessment route
l Providing for basic needs of those identified as rough sleeping
l Improving accommodation and resettlement facilities
l Creating the opportunities to facilitate a move-on to independent living
l Support in independent living to prevent the recurrence of rough sleeping ITEM: q
PAGE: 3
4.2 The Challenge Fund bid aims to meet the strategy through :
l The Outreach service
l Winter Crisis Shelter
l The Chanonry Centre
l Rent / Deposit Guarantee Scheme
l Support in Independent Living
4.3 The European Social Fund bid will assist at all stages and will cover :
l Guidance and Counselling l Independent Living Skills
l Communication Skills l Personal Skills l Vocational Training l Work Placement
5. The Scottish OfXce Bid
5.1 Funding is included for :
l E53,205 for the outreach staff to continue until March 2000
l f3,OOO for rent deposits to be added to the current Rent Deposit Scheme
l &25,000 decant costs for Chanomy Centre
l $300,000 Capital tinding for the Chanonry Centre
l E40,OOO Revenue fimding for crisis night shelter (the aim is that this will be self finding by April 2000)
6. The European Social Fund Application
6.1 The European Social Funding bid is centred around continued fimding for the 1.5 project workers and the costs of running the training.
6.2 The bid is for a total cost of 287,600 broken down as follows :
267,079 staffing costs & 6,776 beneficiary costs E13,745 trainer / accommodation costs
6.3 The application is seeking 539,420 from the European Social Fund with The Moray Council matching tinding being 248,180. This is met from existing staffing and accommodation budgets, “in kind”, i.e. the Council’s contribution is from existing staffing and accommodation resources.
6.4 It is not intended to continue the scheme after the year. ITEM: s’
PAGE: 4
7. Financial Implications
7.1 There is a capital contribution of jZlOO,OOO in the General Services : Other Housing Capital Account for the redevelopment of the Chanonry Centre as the Council’s contribution to this strategy.
7.2 There is a 55,000 contribution from the Social Work Division through the Service Level Agreement additional revenue costs for the Chanonry Centre.
8. Staffinp ImDlications
8.1 If The Scottish Office bid is successful then the 1.5 outreach workers post will continue to be finded until March 2000. It would be the intention to extend the temporary contracts of the existing members of staff for the duration of the project.
8.2 If the European Social Fund application is successful there will be tinding for 1.5 new posts for the year 1999.
9. Environmental Implications
9.1 There are no environmental implications directly associated with this report.
10. Consultations
10.1 Consultations have taken place with the Chief Housing Officer, all members of the Steering Group, the Assistant Chief Financial Officer, Assistant Personnel Manager and Lindsay Manson of The Scottish Office who agree with the recommendations of the report.
11. Recommendations
11.1 Housing and Social Work Committee is asked to :
4 agree the Challenge Funding bid to The Scottish Office under the Rough Sleepers Initiative;
b) agree the European Funding application for training for homeless people; 4 agree the Committee may need to review the strategy and how it is funded during the 2000/2001 budget setting process.
Author of Report: Iain Terry - Planning & Development Manager Background Papers: Held by Chief Housing Officer Ref CJ/IT/LJW/Rough Sleepers/Nov98
Signature: “...... “-.<...... Designation: Chief Social Work Officer Name: David Sullivan APPENDIX I
Rough Sleepers Initiative
Challenge Fund October 1998 bid
Refer to brochure issued as Appendix with Item 12 of the Agenda for the Housing Committee
“Bid to the Scottish Office for Rough Sleeper Initiative Funding and Bid to European Social Fund for Funding for Training for Rough Sleepers”