Community planning in Aberdeen

Prepared for the Accounts Commission and the Auditor General for Scotland March 2013 The Accounts Commission

The Accounts Commission is a statutory, independent body which, through the audit process, requests local authorities in Scotland to achieve the highest standards of financial stewardship and the economic, efficient and effective use of their resources. The Commission has four main responsibilities:

• securing the external audit, including the audit of Best Value and Community Planning

• following up issues of concern identified through the audit, to ensure satisfactory resolutions

• carrying out national performance studies to improve economy, efficiency and effectiveness in local government

• issuing an annual direction to local authorities which sets out the range of performance information they are required to publish.

The Commission secures the audit of 32 councils and 45 joint boards and committees (including police and fire and rescue services).

Auditor General for Scotland

The Auditor General for Scotland is the Parliament’s watchdog for helping to ensure propriety and value for money in the spending of public funds.

She is responsible for investigating whether public spending bodies achieve the best possible value for money and adhere to the highest standards of financial management.

She is independent and not subject to the control of any member of the Scottish Government or the Parliament.

The Auditor General is responsible for securing the audit of the Scottish Government and most other public sector bodies except local authorities and fire and police boards.

The following bodies fall within the remit of the Auditor General:

• directorates of the Scottish Government • government agencies, eg the Scottish Prison Service, Historic Scotland • NHS bodies • further education colleges • Scottish Water • NDPBs and others, eg Scottish Enterprise.

Audit Scotland is a statutory body set up in April 2000 under the Public Finance and Accountability (Scotland) Act 2000. It provides services to the Auditor General for Scotland and the Accounts Commission. Together they ensure that the Scottish Government and public sector bodies in Scotland are held to account for the proper, efficient and effective use of public funds. Community planning in Aberdeen 1 Contents

Commission findings Page 2

The audit of community planning Page 4

Summary Page 7

Part 1. Local context Page 10

Part 2. Leadership and governance Page 15

Part 3. Managing performance Page 19

Part 4. Use of resources Page 24

Part 5. Working together Page 27

Part 6. Impact and outcomes Page 32

Part 7. Improvement agenda Page 40 2 Commission findings Commission findings 3

1. We are grateful to Community 6. A new long-term vision for the Planning Aberdeen for volunteering to city provides a good basis, but this take part in one of the three early audits vision needs to be supported by of community planning, especially at clear priorities that are reflected in an this time of significant change. agreed plan of action and in partners’ own plans. 2. These findings should be considered alongside the 7. The piloting of a new ‘whole Commission’s general conclusions systems approach’ is a potentially on community planning in Scotland, significant initiative, but we note published in our accompanying report. that it is too early to assess its Community planning provides a clear effectiveness. We welcome the opportunity to deliver a step change increasing emphasis on preventative in the performance of public services. work. The partnership needs to We have found that partnership complement such initiatives with working is well established and there a more effective approach to joint are many examples of joint working resourcing and a better focus on that are making a difference for managing performance in relation specific communities. But Community to outcomes. Planning Partnerships (CPPs) are not yet able to demonstrate that they have 8. We are encouraged by the recent had a significant impact in delivering changes seen in the partnership, but improved outcomes across Scotland. this momentum needs strengthened and maintained. 3. The need to improve performance goes beyond individual CPPs. Delivering change to help meet the demanding requirements of the Statement of Ambition for community planning will require strong and sustained leadership at national and local level.

4. This will not be straightforward: the outcomes that CPPs are trying to improve are complex and deep rooted. CPPs therefore need to be clearer about their priorities for improving their area. They need to focus their efforts through using their combined resources, skills and expertise.

5. Community Planning Aberdeen has shown increasing self-awareness in recognising how it needs to improve. Recent improvements in governance structures have helped provide momentum, but commitment from all partners, particularly NHS Grampian, needs to be clear and consistent. The partnership needs to show better leadership to get more out of community planning for the city. We note the lack of evidence of significant impact that partnership working has had on outcomes for the city. 4 The audit of community planning The audit of community planning 5

Background 3. All councils have established a the core of public service reform. CPP to lead and manage community CPPs will drive the pace of service 1. Community planning is the process planning in their area. CPPs are not integration, increase the focus on by which councils and other public statutory committees of a council, or prevention and continuously improve bodies work together, with local public bodies in their own right. They public service delivery to achieve communities, the business and do not directly employ staff or deliver better outcomes for communities.5 voluntary sectors, to plan and deliver public services. Under Section 19 of The Statement of Ambition also better services and improve the lives the Act, it is possible for the CPP to emphasises the need for all partners of people who live in Scotland. establish the partnership as a legally to have collective accountability for distinct corporate body. Some CPPs delivering services. This includes 2. Community planning was given have considered this option but, to being accountable for their own a statutory basis by the Local date, none has taken it forward. contribution to local planning. Government in Scotland Act 2003 (the Act). Under the Act: 4. The structure of CPPs and the Previous audits of community areas they cover vary considerably, planning and partnership working • Councils have a duty to initiate, depending on the size and geography 7. Audit Scotland’s national report facilitate and maintain community of the council area, the local Community planning: an initial review, planning. economy, local political priorities, and 2006, found that there had been socio-demographic factors such as some progress with community • NHS boards, the police, the fire age, gender, and relative wealth. planning, but that important issues and rescue services, and the needed to be dealt with: enterprise agencies (Scottish The Christie Commission and the Enterprise and Highlands and Scottish Government and COSLA • The complexity of community Islands Enterprise) have a duty to review of community planning planning structures and different participate in community planning. 5. Between 2011/12 and 2014/15, accountabilities could be a barrier This duty was later extended to the Scottish Government’s spending to effective working. Regional Transport Partnerships.1 will fall by 5.5 per cent (£1.5 billion) in real terms.3 Reductions of this • Performance management and • Community Planning Partnerships scale are a significant challenge monitoring processes were not (CPPs) are required to engage for the Scottish public sector. The well developed. with communities, report on Christie Commission report on the progress, and publish information future of public services highlighted • Community engagement could be on how they have implemented the need for a new, more radical, more sustained and systematic. their duties and how outcomes collaborative culture throughout have improved as a result.2 Scotland’s public service. It called • CPPs should be clearer about the for a much stronger emphasis on resources required to achieve their • Scottish ministers, through the tackling the deep-rooted, persistent outcomes.6 Scottish Government and its social problems in communities agencies, have a duty to promote across the country to enable public 8. Audit Scotland’s 2011 national and encourage community bodies to respond effectively to report, The role of community planning. these financial challenges.4 planning partnerships in economic development, found that: • Councils can invite other bodies 6. The Scottish Government’s such as colleges, higher education response to the Christie Commission • CPPs had supported local institutions, business groups, included a commitment to review economic developments voluntary organisations and community planning. That review community groups to take part led to the publication of a Statement • the introduction of Single in community planning, although of Ambition for community planning Outcome Agreements (SOAs) had these are not statutory partners. which stated that effective community improved how CPPs monitor and planning arrangements will be at report progress

1 Transport (Scotland) Act 2005. 2 The Local Government in Scotland Act 2003 – Community Planning: Statutory Guidance, Scottish Executive, 2004. 3 Table 6.02 – Departmental Expenditure Limits, applying the following deflators: 2012/13 = 2.5 per cent; 2013/14 = 2.7 per cent; 2014/15 = 2.7 per cent, Scottish Spending Review 2011 and Draft Budget 2012-13, Scottish Government, September 2011. 4 The Commission on the Future Delivery of Public Services, Christie Commission, June 2011. 5 Review of Community Planning and Single Outcome Agreements: Statement of Ambition, Scottish Government and COSLA, March 2012. 6 Community planning: an initial review, Audit Scotland, 2006. 6

9. However, it also found that many designed to strengthen the • Impact and outcomes – can of the problems identified in 2006 accountability of CPPs and supporting the CPP show its actions are persisted.7 improved performance. making a difference for the area and improving outcomes for 10. Audit Scotland’s 2011 national 13. Those proposals were submitted local people? report on Community Health to the Cabinet Secretary for Finance, Partnerships (CHPs) found that Employment and Sustainable Growth 16. The audit of Aberdeen’s CPP approaches to partnership working in June 2012. was carried out in September 2012, had been incremental and there by a team from Audit Scotland, with was a cluttered partnership 14. Aberdeen, North Ayrshire, and support from the Care Inspectorate, landscape. CHPs were set up in the Scottish Borders CPPs agreed Education Scotland and Her Majesty’s addition to existing health and social to participate in three early audits to Inspectorate of Constabulary care partnership arrangements in help the Accounts Commission and Scotland (HMICS). We gratefully many areas. This had contributed the Auditor General for Scotland test acknowledge the cooperation and to duplication and a lack of clarity the CPP audit framework. For the assistance provided to the audit of the role of the CHP and other first time, these audits focus on the team by all the CPP partners and partnerships in place in a local area. impact and effectiveness of individual representatives involved in the audit. Partnership working for health CPPs, rather than community We are particularly grateful for the and social care requires strong, planning as a national process. constructive approach adopted by the shared leadership by both NHS CPP to the audit process at a time of boards and councils. Differences in 15. The overall aim of our audit significant change and development culture, planning and performance was to assess the effectiveness of for the CPP in response to the management arrangements are community planning in making a Scottish Government and COSLA barriers that need to be overcome. difference to local communities. We community planning review. did this by gathering and evaluating About the audit evidence to allow us to answer the following four questions: 11. The role of community planning in improving Scotland’s public services • Strategic direction – has the has become increasingly important. CPP set a clear strategic direction, The Scottish Government therefore with clear improvement priorities, asked the Accounts Commission to agreed by all partners, which lead development work to prepare reflect the needs of the area, and an outline case on how external audit are based on effective community and inspection might hold CPPs to engagement? account for their performance and help them to deliver better outcomes. • Governance and accountability – does the CPP have effective 12. The Commission and the Auditor governance and accountability General for Scotland worked with arrangements, and is it able to their scrutiny partners (Education demonstrate effective shared Scotland, Care Inspectorate, leadership which ensures Her Majesty’s Inspectorate improved outcomes for the area? of Constabulary for Scotland (HMICS), the Scottish Housing • Performance management and Regulator (SHR) and Healthcare use of resources – has the CPP Improvement Scotland). It worked established effective performance with the Convention of Scottish management arrangements Local Authorities (COSLA), the which are delivering performance Society of Local Authority Chief improvements, including effective Executives (SOLACE) and the self-evaluation arrangements; Scottish Government. The Accounts and securing best use of public Commission and the Auditor General resources, including service developed an audit framework integration?

7 The role of community planning partnerships in economic development, Audit Scotland, 2011. 7 Summary 8

17. Community planning has been (TACA) was established, consisting 23. By 2011, there was a growing established for almost a decade of Aberdeen Council and its local awareness by Aberdeen Council and in Aberdeen. Over this period, public and private sector partners, its partners that they needed to make partnership working between as the key group for improving significant changes in their approach different parts of the public sector outcomes for local people. TACA to community planning. Following an has steadily developed. Despite this, developed a series of community external review, TACA was replaced there is little evidence to show that plans, setting out long-term plans by CPA. This has led to a series of community planning has had a major for developing the local economy, reforms. A CPA Board, consisting of impact on people living in Aberdeen. reducing inequalities within the city, eight members, has been created Significant differences remain and improving health, education and to help improve decision-making. between the least and most deprived community safety. These led to the Governance structures have been communities in aspects such as first SOA in 2008, which aimed to simplified, with the 14 Challenge health, crime and education levels establish a more structured approach Forums replaced by six Theme gaps. Community Planning Aberdeen to directing resources towards Groups. Needs assessments are (CPA) has recognised the need for agreed improvement areas, and being carried out to help identify the improvements and has started to monitoring progress against local and key community priorities which need implement a series of ambitious national targets. to be addressed by CPA. And a new reforms. It is, for example, piloting long-term Vision for Aberdeen has a greater emphasis on preventative 21. Over the past decade, joint been established. work. CPA has shown that it is now working has steadily developed within starting to move in the right direction. Aberdeen. A series of Challenge 24. CPA has also started to put a However, it still has much to achieve Forums were established, bringing greater emphasis on preventative before it will be able to meet the together local organisations and work. It has piloted a new whole- aspirations set out in the Statement coordinating their work. A Community systems approach, which aims to of Ambition. Health Partnership has been shift partner resources from dealing successfully established, designed with social problems to preventing 18. Aberdeen is a prosperous city. to strengthen the links between them. There are two pilot projects, As the ‘energy capital of Europe’, health and social care services. in education and community safety. its economy remains strong. In addition, other groups were While it is too early to assess their Unemployment and benefits established to address particular areas impact, they do provide a potential dependency are well below national of concern, such as the Aberdeen model of how public organisations levels and average earnings are Drugs and Alcohol Partnership and can work together more effectively. relatively high. Reflecting this the Integrated Children’s Services affluence, average life expectancy is Partnership. 25. Despite these significant changes, higher than in other parts of Scotland. CPA knows that it still has much to 22. The challenges facing community do before it will be in a position to 19. Within this picture of overall planning partnerships are complex. meet the challenging agenda set out prosperity, however, Aberdeen faces Deep-seated social issues can in the joint Scottish Government and some important challenges. Some take many years, if not decades, COSLA Statement of Ambition for of these reflect national issues, such to resolve. In addition, with many community planning. A Development as managing the impact of the global factors at play, it can be difficult Plan has recently been approved by recession and maintaining health and to match partnership actions and the CPA Board, aimed at improving social care services for an ageing investments with subsequent performance management, population. Others are more specific changes in community outcomes governance and accountability, and to Aberdeen, with sharp differences such as health and deprivation. community engagement. between affluent and deprived parts However, there is little evidence to of the city, not just economically but show that this increased partnership 26. In addition, there are other, more also in terms of health and education. working had any significant impact in difficult issues, that the partnership is There are also high levels of drug tackling the sharp inequalities within now planning to address: and alcohol abuse, and relatively high Aberdeen. Together, local partners in crime levels. Aberdeen spend over £866 million • Ensuring that all key public sector a year, with a further £451 million leaders, particularly from NHS 20. It has long been recognised that spent by the Department of Work Grampian, are committed to CPA tackling these complex and deep- and Pensions (DWP). But TACA acting as the strategic coordinating seated issues requires strong and has not had a significant impact group for partnership working and effective partnership working. In on redirecting resources towards public service reforms locally. 2003, The Aberdeen City Alliance partnership priorities. Summary 9

• Agreeing a clear set of shared priorities that focus on what is important for Aberdeen, rather than try to meet every aspiration.

• Ensuring that shared community planning priorities are embedded in the strategies and resourcing plans of partner organisations.

• Developing a joint resourcing framework, underpinned by a better understanding of costs and service impact, and using this to shift resources towards preventative work which can generate long-term savings or improved outcomes.

• Establishing a strong focus on outcomes that will allow it to monitor the impact it is having on individuals and communities within Aberdeen and to hold partners to account for their performance.

27. There are also barriers at a national level which will need to be overcome. For example, there is a need for the Scottish Government to avoid short-term funding of initiatives aimed at addressing long-term issues. Similarly, there is a need to ensure that performance data that is collected nationally is regularly updated and collected at consistent ward or data zone levels to help monitor any progress in reducing deprivation and inequalities.

28. CPA has shown that it is now starting to move in the right direction. Its revised structures and processes provide a good framework to meet the more demanding expectations of community planning partnerships that are set out in the Statement of Ambition. However, it has a long way to go before it will be able to meet the aspirations set out in the Statement of Ambition. The CPA Board will need to provide sustained leadership, with all partner organisations aligning their work and, perhaps more importantly, their resources to achieve its wider community priorities. 10 Part 1. Local context Part 1. Local context 11

Community planning in Aberdeen maintained, recognising that some 32. A number of local initiatives were strategic issues, such as the introduced during this period, such 29. Aberdeen City Council, in economy or transport, needed to be as the introduction of locality-based consultation with other local addressed in a wider context. The planning, the chairing of TACA by organisations, published its first Aberdeen City and Shire Economic a community representative, and community plan in 2001. This was Future (ACSEF) represents business moves to make TACA an incorporated followed by the establishment interests. NESTRANS acts as the company. However, by 2011 there of a formal Community Planning transport partnership for Aberdeen remained long-standing frustrations Partnership, known as The Aberdeen City and Aberdeenshire. that community planning had not City Alliance (TACA). This included delivered significant changes for the representatives from over 30 31. In 2008, following the national people of Aberdeen. Following a local organisations, such as NHS Concordat agreement between locally commissioned review in 2010, Grampian, Grampian Police, Grampian the Scottish Government and TACA was disbanded and replaced by Fire & Rescue, and local colleges local authorities, TACA published a CPA. This started a series of reforms and universities. It also included combined Community Plan and Single in community planning structures and representatives from the business Outcome Agreement (SOA). This management arrangements: and voluntary sectors. sought to combine local and national priorities and to provide a more • A new Vision for Aberdeen has 30. In addition to TACA, several structured approach to setting targets been agreed. regional structures were also and monitoring progress (Exhibit 1).

Exhibit 1 Timeline of community planning in Aberdeen

Aberdeen City Partnership working developments

Publications

Policy/legislation change 2010: 2003: Review of The Local community 2002: Government in planning in Aberdeen's Scotland Act Aberdeen Community Planning (2003) gives commissioned Partnership, The councils statutory from external 2011: Aberdeen City responsibility for consultants Community Alliance (TACA) is leading community Planning established planning in Aberdeen (CPA) their area replaces TACA

1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013

2001: 2007: 2012: Aberdeen Council, with Scottish Government Scottish Government and COSLA input from other local and COSLA agree the publish a Statement of Ambition organisations, publishes creation of a SOA on community planning its first community plan 2012: Progress report on community planning in Aberdeen commissioned from external consultants Source: Audit Scotland 12

• A CPA Board of eight members unemployed, compared with Crime levels has been created. 7.9 per cent for Scotland. Similarly, 41. Aberdeen has relatively high a lower proportion of Aberdeen’s levels of crime. While these have • The 14 Challenge Forums, which working age population claim key fallen significantly over the past supported TACA, have been DWP benefits (11.2 per cent, decade, they have remained replaced with six theme groups. compared with the Scottish average consistently above the Scottish of 16.5 per cent). average. In 2010/11, for example, • Two whole-systems approach 2,120 crimes per 10,000 population pilots have started to provide a 36. Gross average weekly earnings in were recorded for Aberdeen, greater emphasis on preventative Aberdeen are also high at £481, well compared with the Scottish average work in community safety and above the Scottish average of £432. of 1,634. education. Health 42. To some extent, this simply 33. At the time of our audit, CPA was 37. People in Aberdeen are relatively reflects the urban nature of Aberdeen. in the process of overseeing further healthy. The average life expectancy However, its crime rates are second changes in community planning for both males (76.3 years) and only to Glasgow and are higher than within Aberdeen. A Development females (80.9 years) is slightly those for Edinburgh and Dundee. Plan, agreed by the CPA Board in above the Scottish average (75.8 Reported levels of domestic October 2012, sets out plans to and 80.4 respectively). housebreaking are particularly high establish a new Community Plan and in Aberdeen (72 crimes per 10,000 SOA. This is a clear response to the 38. Within this overall picture, population, compared with the Scottish main themes in the Statement of however, there are areas of concern. average of 34). Domestic abuse and Ambition, placing a greater emphasis The proportion of its population offences related to drugs and alcohol on the preventative agenda, the hospitalised for alcohol- and drug- are also of particular concern. best use of shared resources and a related causes is significantly sharper focus on outcomes and their worse than the Scottish average. In Environment impact on the community. 2010/11, Aberdeen had 842 hospital 43. Aberdeen has a direct economic patients per 100,000 population interest in environmental issues. Local economy with an alcohol-related diagnosis, With an expected long-term 34. Aberdeen City is a major global compared with the Scottish average decline in oil and gas reserves, centre for the oil industry. The of 695. Similarly, Aberdeen’s rate for the CPP has sought to encourage energy sector provides a greater diagnosis of drug misuse was the creation of jobs in sustainable percentage of jobs in Aberdeen than 211 per 100,000 population, energy. The Department of Trade in Scotland as a whole (ten per cent compared with 123 for Scotland and Industry, for example, has of jobs compared with two per cent as a whole. based its renewables headquarters for Scotland). In turn, this supports in the city. This aims to maximise other areas of employment such School attainment levels jobs and investment in renewables as retail, wholesale and hotels 39. There is no consistent picture worldwide. (21 per cent), finance and of educational attainment levels for business (21 per cent) and other Aberdeen’s schools. At S4 level, 44. Aberdeen’s carbon footprint has service industries, such as public attainment levels have improved been estimated at 12.9 tonnes per administration and education significantly over the past decade. head of population, broadly in line (30 per cent). With a large oil But they have remained consistently with other Scottish cities. industry, the public sector makes below the Scottish average. In up a significantly smaller proportion 2009/10, the average S4 tariff scores 45. Transport is a significant of the local economy than in other for pupils in Aberdeen was 177, contributor to the city’s impact on parts of Scotland. compared with 182 for Scotland as the environment, with many people a whole. commuting into Aberdeen from 35. Even in a time of general surrounding areas. Around 71 per recession, Aberdeen’s economy is 40. In contrast, attainment levels for cent of people use their car to travel relatively buoyant. A higher proportion S5 pupils in Aberdeen are slightly to work. Major capital projects, such of its population (67 per cent) are higher than the Scottish average. as a city bypass, are planned to help of working age compared with the In 2011, 27.2 per cent of pupils in improve the transport infrastructure. Scottish average of 63 per cent. Aberdeen gained three or more Only 5.4 per cent of Aberdeen’s Highers, compared with 26.3 per cent economically active population are in Scotland as a whole. Part 1. Local context 13

Deprivation levels in Aberdeen Exhibit 2 46. Overall, as might be expected for Levels and types of deprivation in Aberdeen a relatively prosperous city, Aberdeen Aberdeen has more data zones in Scotland’s most deprived areas for crime does not have a high proportion of and health than for other domains. Scotland’s most deprived areas. It contains 267 data zones used to compile the Scottish Index of Multiple Number of Aberdeen’s 267 data zones which are in Scotland’s Deprivation (SIMD). Of these, only 15 per cent most deprived areas: 22 (8.2 per cent) were in the 15 per cent most deprived data Crime zones in Scotland in 2012. 49

47. Within this overall picture, Health 48 however, there are some significant variations in terms of the individual components which make up the Housing 41 overall SIMD scores (Exhibit 2). Aberdeen has particularly low levels of deprivation for employment, Education 34 income, and services and facilities. In contrast, significantly more parts of the city are in Scotland’s most Employment 14 deprived areas for crime, health, and housing. Income 12 48. These significant variations in deprivation levels, with sharp Access 10 contrasts in local socio-economic indicators which tell a tale of two cities (Exhibit 3, overleaf). Some wards, such as Lower Deeside and Source: Scottish Government: Scottish Index of Multiple Deprivation (SIMD), 2012 Hazlehead/Ashley/Queens Cross, are among the most affluent in Scotland. Other parts of the city, such as the Northfield and Torry/Ferryhill wards, have high levels of deprivation which are accompanied by high levels of crime, low education performance, and significant health concerns. This represents a significant challenge for Aberdeen’s Community Planning Partnership which has a long-standing objective to reduce inequalities within the city. 14

Exhibit 3 Affluent and deprived areas in Aberdeen

Source: Scottish Government: Scottish Index of Multiple Deprivation (SIMD), 2012 15 Part 2. Leadership and governance 16

In previous years, the Aberdeen The strategic leadership of • Tier 3 – Strategic theme groups. City Alliance did not provide strong community planning in Aberdeen There are six groups, covering: leadership or decision-making has improved, but there is healthier, wealthier, fairer, greener, 49. The Local Government in still a need to strengthen NHS smarter, and safer and stronger. Scotland Act 2003 recognised the engagement These replace the previous 14 leading role of local authorities in 52. CPA has now established a challenge forums. Their aim is to relation to community planning. But new structure, aimed at improving focus on issues that cut across all it also indicated that the leadership decision-making and accountability. the services the partners deliver role should be carried out by the It retains a broad representation and oversee their operational plans organisation best placed to discharge from the local public, business and and performance (Exhibit 4). this role and that participating partners voluntary sectors. However, it has should be encouraged to lead on also created a smaller CPA Board, 53. It is too early to say whether appropriate themes.8 The Scottish supported by six theme groups. the new structure will be any more Government and COSLA Statement There are three formal tiers to this effective as it has only been set up of Ambition for community planning new structure but many other groups in recent months and few meetings reinforces the importance of shared also operate outwith this structure: have been held to date. The CPA leadership, with its emphasis on Board has recognised the need to CPPs being genuine boards, with all • Tier 1 – CPA. This brings together ensure that it has representatives the associated authority, behaviours 30 representatives from a wide from all key sectors and with and roles that this implies, for both range of local public business and sufficient delegated authority from them and constituent partners. voluntary organisations. their individual organisations. The CPA Board is now seeking to strengthen 50. When TACA was formed • Tier 2 – CPA Board. This has its representation from Higher and in 2002, it had 30 members. eight members: the leader and Further education, the business This helped to ensure a broad chief executive of Aberdeen sector and from NHS Grampian. representation from Aberdeen’s Council, ACVO chief executive, public, private and voluntary sectors. Community Health Partnership 54. There is also a need to strengthen However, this wide membership NHS general manager, Police the role of elected members. They did not promote effective decision- area commander, Fire area can play an important role in leading making. Increasingly, it became commander, Civic Forum and promoting community planning. seen as a discussion forum, useful representative, and a business However, in earlier years, they for developing organisational sector representative. The have provided little leadership in relationships and sharing information, creation of this smaller group community planning. This has started but not for driving forward changes is designed to provide greater to improve. The council leader now in service delivery and improving strategic decision-making. chairs CPA Board meetings and it outcomes for local people. has been agreed to increase the number of councillors on the board. 51. In addition, membership of TACA was often not at a sufficiently senior level which meant individuals often Exhibit 4 had very limited delegated authority The number of partnership structures has been reduced from their organisations to commit their organisations to actions. This hindered TACA’s ability to make TACA in 2002 CPA in 2012 decisions and ensure these Tier 1 30 members Wide membership were implemented. Tier 2 – 8 members Tier 3 14 Challenge Forums 6 theme groups

Source: Audit Scotland

8 The Local Government in Scotland Act 2003 – Community Planning: Statutory Guidance, Scottish Executive, 2004. Part 2. Leadership and governance 17

However, much work still remains. groups, on a cyclical basis. More local impact of the creation of a Councillors we met during our audit time is needed to see how these single police service and fire and were interested in practical examples proposals develop, but this new rescue service for Scotland. Until of partnership working in their local structure does provide an opportunity recently, the CPA Board has been wards, but unsure of the relevance of for clearer lines of accountability and focused on developing its own the Community Planning Partnership. greater focus on the links between vision and strategy for the area and different priorities. strengthening its leadership and CPA is establishing clearer governance arrangements. governance and accountability 58. However, there may still be arrangements, but these need to be scope for some further rationalisation 61. It is now important that the CPA extended to partner organisations of structures. Below the six theme Board begins to influence these major 55. Good governance is critical to groups, some challenge forums reforms, to ensure they align with successful partnership working as it still operate. In addition, there are its new vision and SOA. The CPA provides a framework for managing a number of other partnership Board needs to delegate some of performance and risks, and ensuring groups, such as the Drugs and the detailed planning, coordination accountability. Audit Scotland Alcohol Partnership. It is not yet and management to more mature published Review of Community clear how all of these fit within partnerships that already exist, while Health Partnerships in Scotland in the overall structure and how they ensuring that it receives regular 2011 which sets out several key have been accountable to the CPA updates on the progress of these principles for good governance Board. Further work is now needed developments, while also retaining for partnership working. CPA has to clearly identify the specific responsibility for strategic decisions. recently used these principles to and distinct roles, membership, The Aberdeen Community Safety assess its own governance and responsibilities and accountabilities Partnership, which has a line of begun to address some areas for of the various groups and indeed accountability to the CPA Board, improvement. whether all of these add value. For is better placed to take on police example, there is still a need to and fire reform planning. Similarly, 56. Since 2002, when TACA was clarify the distinct roles, membership, the newly established Aberdeen established, community planning in responsibilities and accountabilities Community Health and Social Care Aberdeen has been supported by 14 between tier 1 and tier 2, as these Partnership (CHSCP) could take on challenge forums. These aimed to currently overlap. the planning for health and social care provide operational oversight of plans integration. Before this happens, the and to monitor progress. It is now 59. There is also a need to embed CPA Board must put measures in recognised by all key partners that community planning activity into place so there is clear accountability this structure was cumbersome and each partner’s formal governance between it and the CHSCP. ineffective. TACA did not properly and decision-making structures. scrutinise the work of the forums Some partners, such as Aberdeen 62. We would expect to see the and rarely asked for, or was provided City Council and the police and CPA Board overseeing these with, progress reports on what they fire and rescue services, provide developments very closely through were doing. Some forums, such as board members with progress perhaps having these as standard the Community Safety Partnership reports on partnership objectives. agenda items at every meeting, and met regularly and had a strong focus In other organisations, such as NHS requesting progress reports from the on setting objectives and monitoring Grampian, these arrangements two partnerships already mentioned. progress. Others, however, did not are less clear. However, so far, CPA has had limited meet regularly, did not have well- involvement in planning for health developed strategies and action CPA needs to oversee local public and social care integration. Over plans, and had poor links with other service reforms such as health and the last year, for example, the CPA challenge forums. social care integration Board has received only one verbal 60. The Scottish Government and progress update on this. It now 57. CPA has now taken steps to COSLA review of community needs to ensure it is able to both greatly simplify these structures. planning is clear that CPPs should influence and learn from this major The 14 challenge forums have been maintain strategic oversight reform to ensure integration plans replaced with six theme groups. of the local implementation of align with and support the delivery of There are now plans for the CPA broader aspects of public service partnership objectives. Board to receive regular progress reform. This includes health and reports from each of the theme social care integration and the 18

There is a need to clarify responsibilities and improve links between the city and broader regional partnership groups 63. Many of the issues facing Aberdeen go beyond the city boundaries and can only be properly addressed on a regional basis. There are a number of regional groups that have been established to take this wider perspective. The Aberdeen City and Shire Strategic Development Planning Authority is responsible for joint strategic planning between the two councils in the North-East. The Aberdeen City and Shire Economic Future (ACSEF) represents business interests. NESTRANS acts as the transport partnership for Aberdeen City and Aberdeenshire. There is also a Chief Officers Group which brings together the chief executives from a wide range of public bodies throughout the region. There are also many other cross-organisational groups which operate at a regional level.

64. There is a need for CPA to continue to work with its counterparts across the region to examine options for coordinating the work of the various regional groups and to clarify the responsibilities between Aberdeen and the wider region, particularly for issues such as economic development and transport. 19 Part 3. Managing performance 20

In previous years, Aberdeen’s A Visioning day was held earlier including analysing the relationship community plans and Single this year, which was attended by and connections between different Outcome Agreements have lacked over 40 stakeholders, including local data sets, such as crime and health a clear focus. partners, elected members and statistics. Once completed, the 65. The Local Government in community representatives. A draft strategic assessments will be used Scotland Act 2003 requires the Vision has now been discussed to confirm the priorities and work CPP to develop and set out a joint by the CPA Board. This provides a programmes for each theme group vision, with shared objectives for the recognisable picture of Aberdeen before they are formally approved by area and jointly agreed, challenging as an economically strong city with the CPA Board. performance outcomes relating to pockets of deprivation. It contains a service improvements.9 The Scottish number of broad aspirations, such There is a strong commitment to Government and COSLA Statement as Aberdeen becoming a socially, engaging with local communities of Ambition highlights the importance economically, and environmentally and using this to help inform of CPPs developing an explicit and sustainable global city by 2022. But priorities binding ‘plan for place’, that will it also sets out a clear intention 70. The 2003 Act is clear that effective deliver improved local outcomes. to build on the oil and gas legacy engagement with community The plan should be underpinned to develop centres of excellence bodies is an essential element of by a clear and evidence-based in renewable industries, while community planning, and that the understanding of local needs and also developing tourism, maritime purpose of community engagement opportunities, drawn from robust and resources and culture. It also clearly should be to improve the planning relevant data.10 expresses partners’ intentions to and delivery of services, by making tackle inequalities in communities, them more responsive to the needs 66. A Vision for Aberdeen has been and improve digital connectivity and and aspirations of communities. The in place since 2001 and accepted transport infrastructure to attract Statement of Ambition emphasises by all partners. However, despite businesses to Aberdeen. the need for partnerships to work this, the partnership lacked strategic effectively with communities to allow focus. This is because the Vision 68. In support of this broad Vision, them to help shape and co-produce was supported by 14 broad priorities CPA took part in a facilitated workshop better outcomes. setting out ambitious plans to tackle with an external consultant to identify a wide range of issues across all the key drivers and enablers that 71. The Community Planning aspects of community life. Although would help deliver the Vision. These Partnership in Aberdeen, along with the number of priorities was reduced are shown in Exhibit 5. There are now individual organisations, carries out a to ten in the first SOA in 2008, only four key priorities (city of culture, wealth of consultation with people in many partners still felt that there integrated transport, local families Aberdeen. For example: had been too many priorities and and digital city), indicating an intention that partnership resources were to focus on fewer, but core, issues. • It operates a citizens’ panel, spread too thinly. There have been These key priorities are consistent known as City Voice. The board subsequent revisions to the SOA but with the Vision for Aberdeen and of City Voice has representation priorities still do not reflect the key appear reasonable at this stage. from all partners and is currently issues that need to be addressed CPA now needs to develop a set of chaired by the representative by partnership working. Instead, specific objectives for each of these of the voluntary sector. Three the SOA has continued to act as a priorities and explain how these will questionnaires are distributed passive summary of existing plans. address the marked inequalities each year to around 900 within Aberdeen. residents. A new Vision and Single Outcome Agreement plan is being developed 69. Strategic needs assessments • It also supports a Civic Forum to provide greater clarity and focus are now being carried out by each which includes representatives for the partnership theme group to help ensure that from community councils and 67. CPA is currently developing all priorities are based on objective communities of interest groups. a new Vision and SOA covering evidence. These needs assessments The forum is represented on CPA 2013/14 to 2017/18. A good follow the approach used in earlier and on each of the joint theme structured and inclusive approach years by the Community Safety groups which support community has been taken to its development. Partnership. It involves analysing data, planning. Representatives of the

9 The Local Government in Scotland Act 2003 – Community Planning: Statutory Guidance, Scottish Executive, 2004. 10 Review of Community Planning and Single Outcome Agreements: Statement of Ambition, Scottish Government and COSLA, March 2012. Part 3. Managing performance 21

community planning partners • More recently, a What Matters? a five-year Business Plan, regularly attend the Forum to Survey was carried out in using a priority-based budgeting discuss service planning and January/February 2012. The approach. This included more provision. survey was designed to give than 1,000 responses to a public people who live or work in questionnaire seeking views on • Regeneration Matters is a group Aberdeen the opportunity to help what matters to the community. of community representatives from determine community planning the regeneration areas of Aberdeen priorities. Over 500 people 72. The results of this consultation who have a membership of responded to the survey. are considered and used to help approximately 30. Members come shape community planning priorities. from all the regeneration areas and • Aberdeen City Council undertook However, in its draft development have been meeting monthly since unprecedented engagement plan, the CPA Board has recognised November 2006. with the community and other the need to improve its approach to key stakeholders to help develop community engagement, locality-

Exhibit 5 Planning framework for the new Single Outcome Agreement Single Outcome Agreement

City Vision

Theme priorities

Economic Learning and Children growth workforce

Community Older Health and safety and people wellbeing offending

Multi-lateral priorities

City of Integrated Local Digital culture transport families city

Underlying principles

Target most Reduce Promote Community- Environmental Pride in in need isolation self-sufficiency based access sustainabilty Aberdeen

Source: Draft SOA, January 2013 22

based planning and service delivery, activities and inputs, rather than The Community Planning and support for civic representatives outcomes. For example, targets Partnership has been poor at on a wide range of community are set for the number of staff scrutinising performance and planning forums. There is also a need trained in suicide assessment and driving improvement for the CPA Board to coordinate this prevention, rather than reducing 78. Scrutiny by board members of wide range of consultation activity the number of suicides in the partnership performance has been to help ensure that it is focused on area. Similarly, the number of poor. There has been no routine partnership priorities. children completing ‘healthy weight system for performance reports intervention programmes’ is being provided to TACA or CPA 73. A key challenge for CPA will be monitored, rather than the number Boards by the theme groups. The ensuring it has sufficient resources of children overweight or obese. board’s monitoring of performance not just to consult with communities These simply reflect NHS HEAT has largely been limited to reviewing but to work with them in a targets determined by the Scottish the annual SOA Progress Report, meaningful way to help shape and Government. In other cases, targets which is produced for the Scottish co-produce better outcomes. seem to be driven by the data that is Government. This is not used to available, rather than the data that is identify shortcomings in performance Performance targets have focused required. For example, the average and to help drive improvements. on inputs and activities, rather than number of seconds lost by vehicles outcomes travelling on the A90 is used to 79. As part of its current 74. Robust performance assess progress in Aberdeen having Development Plan, CPA has identified management is an essential a fully integrated transport network. the need to greatly improve its component of an effective No other measures are used to performance management. It is community planning process. The assess how cars, buses and trains considering proposals to establish a 2003 Act sets out the need for are actually integrated. cyclical approach, with each meeting CPPs to monitor progress with of the CPA Board considering a regard to agreed outcomes, and 77. Our audit found that effective performance report from one of to use that monitoring to improve performance management is also the six theme groups. As the Board local arrangements for the planning hindered by a marked inconsistency meets every two months, this would and delivery of services to deliver in the data which is available locally mean that theme groups would only better outcomes. The Statement of and nationally. These reflect historic report once a year. The board needs Ambition places great emphasis on factors, with different data sets to consider whether this is sufficient the CPP monitoring performance relating to different initiatives. In to maintain oversight of performance, over time to drive and demonstrate some cases, such as crime levels, or whether an exception report continuous improvement. performance data is available at could also be provided to each police beat level, of which some board meeting covering the key 75. There are clear difficulties in of this can be aggregated to SIMD performance indicators across all monitoring outcomes for long-term data zone level. However, there is theme groups. objectives in areas such as health, a lack of consistent data available life expectancy, and deprivation. It nationally at SIMD or police beat 80. Below board level, there has been can take many years before there level to enable comparisons of crime an inconsistent approach to scrutiny. are any significant changes in these figures with other parts of Scotland. The Community Safety Partnership, community outcomes. Partnerships A small number of health statistics which oversees the ‘Safer’ theme, need to monitor the progress being are available at SIMD data zone has had a relatively strong approach made towards their long-term level, while some are available at to performance management. Some objectives but, in practice, this needs intermediate zone, CHP or NHS board of its targets measure activity, but to be blended with monitoring inputs level. Others, such as economic data, there is some focus on community and medium-term proxy measures. are mainly available only at council outcomes. Moreover, performance or regional level. This cluttered monitoring forms a part of each of its 76. Performance targets have landscape of statistics makes it very meetings, with comparisons made been set for each of the high- difficult to form a clear and consistent against the previous month and year level objectives contained within picture of performance and to to help drive further improvements in Aberdeen’s SOA. However, monitor any progress in closing the performance. In contrast, most other in most cases, the balance of gaps between deprived and non- previous challenge forums have had these targets have focused on deprived areas. a weak approach to performance Part 3. Managing performance 23

management. Meetings have been performance. Although there is a lot held infrequently and performance of information in the 2010/11 report, monitoring has not formed a standard there are major gaps in performance part of agendas. Where performance data. In many cases, this is due to has been discussed, this has tended the long delays in the availability to focus on activities, rather than of national data on areas such as outcomes. The CPA Board is aware transport, employment, and business that the scrutiny role of the new start-ups. In addition, the format theme groups needs further work. of the SOA can be confusing, with It has included this as an area for no clear links between partnership improvement within its development objectives and performance plan but it has still to agree actions to information. As such, the report does address this. not provide a clear picture of the progress being made towards CPAs’ 81. The Community Plan and the strategic objectives. Single Outcome Agreement are not used by all partner organisations 84. The report was submitted to to routinely monitor their own the CPA Board and to the Scottish contribution to the SOA or overall Government. Some comments, progress in achieving shared aimed at improving the SOA, objectives. Instead, some partners were provided to the CPA Board focus their performance monitoring by managers within the Scottish entirely on their own plans, which Government, but these were on may include some of the same points of detail rather than seeking targets which are reflected in the fundamental improvements in the Community Plan and Single underlying performance management Outcome Agreement. arrangements.

The annual SOA monitoring reports do not provide a clear picture of performance 82. In 2008, as part of a national Concordat between the Scottish Government and local authorities, SOAs were established for each Community Planning Partnership. These were intended to help ensure that national priorities were properly reflected in each local community plan. They also aimed to improve the setting of targets and the monitoring of performance.

83. In accordance with these national arrangements, CPA published an SOA Progress Report in 2010/11. This is the only document which seeks to provide the CPA Board or the public with an overview of the progress being made towards local community planning objectives. This summarises its main activities over the previous year and seeks to provide a comprehensive account of its 24 Part 4. Use of resources Part 4. Use of resources 25

Aberdeen’s public sector spends Exhibit 6 about £1.6 billion each year, but it Public sector budgets in Aberdeen faces cuts of over five per cent over Public sector bodies in Aberdeen have combined net budgets of the next few years about £1.6 billion. 85. The 2003 Act was clear that effective participation in community 1% 1% DWP, £450.8 million planning obliged partners to identify 5% 2% and allocate the resources necessary Aberdeen City Council, £423.7 million 28% to achieve agreed outcomes. More 14% recently, the Statement of Ambition NHS Grampian, £379.4 million places an expectation on CPPs University of Aberdeen, £226.9 million to have a clear understanding of respective partner contributions, and Robert Gordon University, £89.2 million how total resources will be targeted Aberdeen College, £28.7 million to deliver agreed priorities. 23% Grampian Police, £23.3 million 26% 86. An estimated £1.5 billion in cash Grampian Fire and Rescue, £12.4 million terms will be spent by public sector bodies, including the Department for Work and Pensions, in Aberdeen in 2012/13 (Exhibit 6). The 2011 Scottish Source: Audit Scotland, 2012 Spending Review and Draft Budget 2012–13 estimates that, between 2011/12 and 2014/15, Scottish looking to achieve revenue savings of and more recently the Change Government spending will fall by around £12 million in order to reach Funds, which are used to help 5.5 per cent (£1.5 billion) in real terms. financial break-even. support preventative initiatives. However, these ring-fenced funds 87. The council recently concluded 89. There are broader pressures only represent about two per cent an extensive priority-based budgeting on Aberdeen’s public sector. An of overall funding. With continuing exercise, which is the basis for its ageing population is likely to lead to pressures on Scotland’s public five-year business plan, approved in an increase in demand for NHS and finances and growing demands on August 2011 and covering the social care services. In addition, the services owing to factors such as an period 2011–16. The plan sets out CPA Board will need to assess the ageing population, there is a pressing £71.5 million of essential savings financial implications for the national need for organisations to work which need to be achieved if the reform of welfare benefits. together, avoiding any duplication of council is to deliver a balanced budget effort, and placing a greater emphasis in the coming years. In addition, the 90. These pressures create a strong on preventative expenditure. partnership is also having to respond impetus for CPP partners to identify to the national reform of welfare opportunities for joint working and 92. There is little evidence to show benefits and services such as police resource-sharing. In common with that TACA or CPA has had any and fire, and the integration of social other CPPs, the CPA does not yet strategic success in influencing work and healthcare. have an overview of the resources individual partner organisations available to it or those required to to align their mainstream funding 88. NHS Grampian’s 2012/13 revenue deliver its SOA priorities. towards community planning budget and capital budget outlines priorities. Almost inevitably, it is very how over £930 million of resources It has proved difficult to align difficult to persuade partners to shift will be used during 2012/13 and resources to shared priorities or to resources from short-term targets to includes new resources of some shift them from short-term targets preventative work which might only £30 million which are offset by to long-term preventative work deliver benefits in the long term for projected additional expenditure of 91. CPA aims to place a greater other public organisations. £42 million. The most significant new emphasis on preventative services. expenditure commitments include To do this effectively, resources 93. Moving resources towards £7.4 million associated with waiting will need to be moved between preventative services is extremely times including vanguard/mobile organisations, including money and challenging to achieve. For example, theatre and £4.1 million non-pay staff, across their organisations to NHS boards in Scotland are inflation costs including energy costs. where it is needed most. It previously experiencing increased demand This has resulted in NHS Grampian managed the Fairer Scotland Fund in hospitals. As a result, they are 26

finding it extremely difficult to release 96. Delivering improved outcomes in There is no clear understanding of resources from acute services to public services will be dependent not the costs of SOA objectives or if invest in more community-based just on strong and effective strategic they provide value for money preventative services. In 2013/14, leadership, but will also require staff 100. The matching of costs to NHS Grampian has identified that it in managerial and front-line positions activities and their subsequent impact will also need £4 million additional understanding the contribution they on priorities, such as health and one-off capital funding and about can make in improving local public education, is particularly complex £8.3 million annual recurring revenue services, having the skills needed, in community planning. Even at a funding to ensure it has the capacity and feeling empowered to make broad strategic level, however, there to meet and sustain waiting time change happen at the local level. has been little attempt in previous targets. This will further impact on years to determine the costs or its ability to free up resources for 97. There are examples in Aberdeen potential savings associated with the preventative services. of joint public sector posts and joint priorities set out in Single Outcome training, particularly between the Agreements and Community Plans. There are several examples of NHS and social work, reflecting areas As a result, it has not been clear if joint appointments and training, of shared interest, such as health budgets have been sufficient or if but the CPP has not yet developed and social care integration. Work has money has been well spent. a cross-sectoral staff development also been taking place within the strategy linked to its key CPP Board to raise awareness of the 101. During 2011/12, CPA participated improvement objectives important role that it is expected to in a Budgeting for Outcomes pilot 94. The Statement of Ambition play in responding to the increased project with the Improvement Service highlights the importance of expectations of community planning and the Scottish Government. investing in the people who contained within the Statement Significant time and effort was deliver services through enhanced of Ambition. committed to this project by all workforce development and effective main partners with the objective of leadership. Similarly, the Scottish 98. A series of Collaborating for showing the relationship between Government’s response to the Outcomes seminars was also partners’ spending and impact on Christie Commission report identifies started in 2012, with the intention to communities and on the outcomes workforce development as one establish these as an annual training set out in the SOA. However, this of its four pillars of public service programme for managers across the has not provided CPA with practical reform. That document emphasises public sector in Grampian. These are tools to help transfer funding to the key role that front-line staff can overseen by the North-East Chief where it might have greatest impact. play in identifying how to make Executives’ Forum, but viewed Rather than such a complex, high- things work better and contains a by CPA as an important part of its level, exercise, CPA staff now feel commitment to invest in workforce approach to workforce development that smaller-scale costing exercises engagement and development and that will ensure that staff across will prove to be more practical. support leadership collaboration agencies are aware of key partnership The ‘whole-systems’ approach across public service organisations. objectives, what their contribution pilots, on education and community It states that the Scottish to meeting them will be, and staff safety, are hoped to provide a Government will look to leaders of are provided with the training and better understanding of the impact Community Planning Partnerships development needed to allow them of preventative work on overall across Scotland to disregard to contribute effectively to local public costs and the budgets of different boundaries between public services service improvement. organisations. and focus on the achievement of shared outcomes and cross-sectoral 99. It is important that as the CPP workforce development strategies. takes forward its local improvement it continues to develop a coherent 95. While it is proportionately smaller and integrated approach to than in other parts of Scotland, the communicating its key priorities size of the public sector workforce to staff, providing them with in Aberdeen is still significant, with appropriate training and development over 10,000 people employed in the opportunities and creating a climate city by the council, the NHS, and the where staff are able to identify and police and fire and rescue services. deliver local service improvements. In addition, others are employed in Further and Higher education and in the voluntary sector. 27 Part 5. Working together 28

There are many examples of joint Case study 1 working in Aberdeen, but there has Community Healthcare Village been little strategic oversight of these activities or evidence on their Aberdeen partners have secured £24 million capital funding from the effectiveness Scottish Futures Fund Hub investment to develop a Community Healthcare 102. The Statement of Ambition Village. The construction of the Village started in April 2012 and is expected emphasises the need for Community to take 18 months to complete and be ready to open in December 2013. Planning Partnerships to have a much stronger focus on making The village will accommodate a range of diagnostic and treatment services demonstrable improvements to within a single location. This is expected to mean that many people will be people’s lives, including reducing the able to receive care in a community setting rather than in the city’s main outcome gaps between communities. hospital complex. Health, social work and police will be based in the new To do this, the community partners centre providing a range of services. must work more closely together, on preventative work, and pool The North Scotland Hub approved the application for this project. To secure resources, such as money and staff. the investment, the partners had to prepare a full business case, including There is growing evidence that these a financial appraisal to demonstrate value for money, and an affordability actions will improve outcomes for assessment. The business case also set out a plan for delivering the people across different services and expected benefits. There are still outstanding financial risks with the help ensure that investment delivers project, although the latest financial implications have been included in value for money. NHS Grampian’s five-year financial plan. 103. Partners in Aberdeen are It is too early to say whether the Aberdeen Healthcare Village will deliver involved in many joint working the intended benefits or provide value for money. However, the North arrangements. There are examples Scotland Hub will follow this up after the facility has been operational for where there are clear benefits, such a suitable time period. There are, however, already significant learning as reduced costs through shared opportunities from this development for public sector partners in Aberdeen premises, while others are less and throughout Scotland. tangible, for example older people feeling safer in their neighbourhoods. Source: Aberdeen Community Health and Care Village business case, NHS Grampian, 2012 Most of these examples of joint working have evolved gradually to meet the needs of individual organisations. However, in previous • Reshaping care for older people as • A major capital project to construct years, there has been little strategic part of the older people’s change a new Healthcare Village in oversight of partnership working by fund to develop preventative care, Aberdeen is under way which will TACA. As a result, it is not clear if involving health, social work and co-locate health, social care and it is properly aligned to community voluntary sector. police staff (Case study 1). planning priorities. CPA has now started to rationalise joint working • Youth Reoffending Development • Community Safety Partnership arrangements and, through the programme – a pilot programme – various initiatives to tackle SOA, is planning to introduce this which has now been completed antisocial behaviour, including one strategic oversight. which adopted a ‘whole-systems’ specific example of a pragmatic approach to youth offending, solution being taken by partners 104. In addition, partners are often including early intervention and to secure a derelict building which unable to demonstrate the benefits of prevention support. had been causing difficulties for these arrangements owing to a lack over ten years (Case study 2). of evaluation. Therefore the evidence • Integrated Children’s Services base to support the effectiveness Partnership (various initiatives Aberdeen partners are piloting a of joint working interventions in based on Getting it right for every new ‘whole-systems’ approach to improving outcomes or secure better child). tackle deprivation but progress is value for money is often weak. slower than expected • Police officers based in schools to 106. Since early 2010, public sector 105. The scale of joint initiatives improve links between the force partners in Aberdeen, have been also significantly varies. Some and communities. working to establish three separate of the examples of joint working pilot projects which aim to take arrangements include: a ‘whole-systems’ approach to Part 5. Working together 29

tackle deprivation issues in different Case study 2 parts of the city. The approach is Preventative action over a derelict building based on lessons from the ‘Total Place’ initiative in England which For over ten years, the Maberly building, which is a derelict building in aimed to put citizens at the heart Aberdeen, had become a magnet for vandalism, persistent fire-raising and of service design and shift the way antisocial behaviour. In addition, the site presented physical hazards to services worked in isolation towards intruders, including flooded lift shafts and unstable fittings. This was not working jointly. It seeks to identify only a safety issue and nuisance to people living in the area but also a drain the total resources used by all on public resources owing to the high volume of call-outs from a number local organisations to tackle certain of agencies to the building each week. CPA took ownership of the issue issues and to then shift some of and coordinated several actions from different partners which rendered the these resources towards more cost- building inaccessible. The actions immediately had the desired result as, for effective preventative measures. In the first time in over ten years, there were no call-outs to this building. The the case of tackling low educational approach is now being applied to other derelict buildings across the city. attainment in deprived areas, for example, this might mean a greater Source: Community Safety Partnership minutes, September 2012 emphasis on pre-school years and a transfer of resources from education to social work budgets. Similarly, in the case of older people’s services, this might mean transferring money Case study 3 out of acute healthcare and investing Northfield ‘Whole-Systems Approach’ pilot on educational the money to help older people achievement live independently at home for as long as possible. There is some This pilot aims to raise educational attainment and achievement in Northfield evidence to suggest that this focus which is an area of multiple-deprivation. The council’s decision was based on prevention can deliver long- on information relating to low educational attainment, comparatively high term savings and better outcomes. absence and exclusion rates alongside a range of existing investments However, it can take some time aimed at tackling disadvantage in the area. The pilot is being managed before these benefits are realised through the Integrated Children’s Services Partnership Board (ICSPB) which and partners must be willing to pool is accountable to the CPA Board. their resources. The initial work ‘themes’ were to: 107. Three pilots were approved by Aberdeen Council in June 2010 • improve services to support families, young people and parents and subsequently supported by the • improve support to families, young people and parents to engage in CPA Board: lifelong learning • provide an integrated programme to promote mental health and • Aberdeen-wide – ‘whole-systems’ wellbeing, including services for children, young adults, parents and approach to improving older families people’s services. • find out how much services currently cost and review their effectiveness. • Torry – ‘whole-systems’ approach to improving community safety. However, the work themes are very broad and there is no plan which sets out the aims and scope of this work or timescales for delivering these. • Northfield – ‘whole-systems’ Although the ICSPB routinely discusses the pilot at its meetings, it does approach to raising educational not receive regular reports on progress. Similarly, CPA does not receive attainment. sufficiently regular progress reports on the project to maintain strategic oversight of this development. 108. However, earlier this year, the older people’s pilot was cancelled Source: Audit Scotland owing to the planned integration of health and social care. Additionally, two years on, there is limited evidence of progress being made with the Northfield pilot (Case study 3). 30

109. At present, there is also limited 113. The Scottish Government Fairer families under stress, helping to evidence of progress or benefits being Scotland funding allocation ended in prevent family breakdown and future achieved as a result of the community 2010/11. Once the funding stopped, interventions from other public sector safety pilot (Case study 4). the council decided to continue to organisations. These projects have allocate a reduced amount of money been subject to some evaluation, 110. These ‘whole-systems’ pilots to the fund every year. This meant but this has mostly focused on the received enthusiastic support from the board could continue its work. activities carried out rather than partners when we interviewed Between 2009/10 and 2011/12, their impact. The partnership is now them during the audit. At least at an the board allocated funding of testing a more sophisticated Social operational level, there is a genuine about £6.2 million to 314 projects. Return on Investment methodology commitment to this new approach. Approximately £1.8 million (28 per for partnership working in order to However, if the ‘whole-systems’ cent) of this funding was allocated to better assess the effectiveness of pilots are to provide valuable learning neighbourhood projects specifically initiatives such as these. as well as deliver sustainable service tackling problems in the seven most improvements, it is crucial that CPA deprived areas of the city. 115. CPA also has overall examines the reasons for the slow responsibility for Scottish Government progress to date, and addresses this. 114. We found some examples Change Fund allocations: It also needs to monitor progress where these small-scale projects more rigorously and put a system in have clearly made a difference to • Reshaping Care for Older place to evaluate the success of the peoples’ lives. The Homestart project, People – Responsibility for projects, including whether or not for example, used its budget of managing this fund has been they offer value for money. £7,000 in 2011/12 to support five delegated to the Aberdeen

CPA needs to ensure short-term initiative funding supports long- Case study 4 term improvements ‘Whole-systems’ approach pilot on community safety 111. The Scottish Government has provided various short-term funding The Community Safety Partnership prepared a business case for over the years to support local public establishing a Community Safety hub which was approved by the CPA sector bodies to tackle inequalities Board in May 2012. and change the way services are delivered. However, there are often The aim of the hub is to encourage greater levels of integration of short timescales for using these community safety services by co-locating a number of agencies in one place, funds. As a result, local organisations while increasing the partnership focus on prevention and early intervention. can find it difficult to take a strategic It is also expected to encourage closer working between analysts from approach to tackling the particular different agencies, creating more opportunities to identify risks and emerging issue. CPA needs to ensure a more problems, while a daily tasking meeting is expected to provide an ongoing strategic approach is taken in the impetus for early and joint actions to tackle emerging problems. future to ensure short-term funding supports long-term sustainable A number of benefits have been highlighted from the approach, with early improvements. interventions and the delivery of more effective and sustainable solutions prominent. For example, by tackling antisocial behaviour early, it is expected 112. In 2008, the Scottish that this will reduce young people’s behaviour developing into more serious Government set up a Fairer Scotland antisocial behaviour and crime. A second phase of the approach is planned Fund which aimed to help tackle to start in 2013, which will involve working with a small number of priority inequalities. CPA was responsible for families to tackle cross-cutting issues which impact on community safety. overseeing the Aberdeen allocation and it established a Fairer Scotland As the hub only became operational in October 2012, it is too early to say Board to manage the Fund on its whether the expected benefits will be delivered. The business case does behalf. The board’s membership not include details of the set-up or annual running costs. Each partner is was drawn from various public expected to meet its own set-up costs, and the estimated annual estimated and voluntary sector partners cost to non-council agencies is £2.5k–£3k per desk space per annum. While and community representatives. the concept of the hub seems sound, there is a risk that the uncertainties The board established criteria for about the costs may lead to sustainability issues at a later date. funding which included projects demonstrating that their activities Source: Audit Scotland aligned with the SOA. Part 5. Working together 31

Community Health and Social Care Partnership (CHSCP) – formerly known as the Community Health Partnership. The CHSCP is a committee of NHS Grampian but also acts as Community Planning Aberdeen’s ‘Healthier’ Theme Group. Aberdeen’s Reshaping Older People Change Fund allocation was £2.7 million in 2011/12 and £3.1 million in 2012/13. So far a wide range of projects have received funding but there is a lack of evidence on the impact these have made. Further work is now under way to improve monitoring and evaluation systems.

• Early Years and Early Intervention Change Fund – Aberdeen’s indicative allocation is worth almost £4 million between 2012/13 and 2015/16.11 Aberdeen Integrated Children’s Services Partnership (ICSP) is expected to manage the Fund on behalf of CPA. The funding has still to be allocated, therefore it is too early to assess the impact of this fund.

• Reducing Reoffending Change Fund – Nationally, £7.5 million has been made available between October 2012 and March 2015. Two key aims of this Fund are to provide offenders with substantial one-to-one support through evidence-based mentoring schemes; and promote strong, equal partnership working between third and public sector organisations. Two types of funding are available: two-year funding for partnerships of third and public sector organisations (from April 2013 to March 2015), and shorter-term funding (from October 2012 to March 2013) either to support the development of partnerships or to support the expansion or enhancement of existing mentoring interventions.

11 13th Meeting, 2012 (Session 4), Education and Culture Committee, Scottish Parliament, 1 May 2012. 32 Part 6. Impact and outcomes Part 6. Impact and outcomes 33

Gaps in data prevent a full There has been some success in 122. The SOA contains a series of assessment of the impact of reducing the outcome gap between targets under National Outcomes 1 community planning in Aberdeen the least and most deprived areas and 2 ‘We live in a Scotland that is 116. Community Planning Partnerships in Aberdeen the most attractive place for doing need to demonstrate that they have 119. The national Statement of business in Europe’ and ‘We realise had an impact in improving outcomes Ambition emphasises the role of our full economic potential’. These for their local communities. The Community Planning Partnerships are grouped into seven areas: Statement of Ambition places CPPs in reducing the outcome gaps at the centre of local public service between the most and least deprived 1. Deliver a fully integrated reform, driving improved outcomes communities. TACA and CPA have transport network. The SOA for local communities. However, recognised that there are particularly provides no clear definition on measuring changes in community sharp differences in health, education what is meant by this objective. outcomes is not straightforward. It and crime levels within Aberdeen The only targets set relate to can take years, if not decades, for and, for many years, have aimed average journey times on the improvements to be made in areas to narrow these gaps. Despite this, A90 and A96 trunk roads. There such as life expectancy or deprivation there has been little monitoring is no clear picture of performance levels. Measuring outcomes rather of any progress towards this goal against this narrow target, with than simply inputs can be difficult. within Aberdeen. SOA monitoring journey delays increasing but And, with so many factors affecting reports, for example, only provide targets for the time lost also these broad outcomes, it can be broad references to SIMD data. Over being raised. There are no targets difficult to attribute any changes to any the past year, CPA has developed relating to public transport or, specific activities. a range of data on aspects such specifically, to the integration as deprivation, education and of transport. As a result, no 117. As mentioned earlier in this crime levels. This should help the conclusions can be drawn on any report, however, there are also monitoring of performance trends in progress towards achieving an significant weaknesses in the future years. integrated transport network. performance management systems supporting community planning and 120. Beyond the SOA Progress 2. Anchor the oil and gas industry. the SOA in Aberdeen with serious Report, the limited data that is The SOA Progress Report shows gaps in the availability of reliable and available elsewhere shows a mixed that the number of companies consistent performance data, both picture, with no clear patterns, attending seminars, workshops locally and nationally. in terms of outcome gaps being and trade missions hosted or reduced in Aberdeen (see Exhibit 7, co-hosted by Aberdeen Council is 118. In this section of our report, overleaf). Progress has been made above target. This doesn’t provide we have sought to comment on some health measures. Similarly, a direct measure of the health of on performance, based on the some education indicators, such Aberdeen’s oil and gas industry, information provided in the as S4 examination results and the but does give some indication of partnership’s SOA Progress Report proportion of school leavers going to council activity. 2010/11. We have also drawn positive destinations, suggest the gap from other sources, such as has narrowed over the past decade. 3. Diversification of the economy. Scottish Neighbourhood Statistics Others, such as S5 and S6 results, The number of local companies (SNS) and the Scottish Index of suggest the opposite. developing renewable technologies Multiple Deprivation (SIMD), to find has steadily increased in recent performance information which Aberdeen continues to be years and is ahead of target. In matches the targets and objectives prosperous, but there is mixed contrast, the net number of new set out in the SOA. Despite this, evidence to show progress towards businesses has fallen sharply since however, there remain significant the SOA’s economic priorities 2007/8, from 595 to 50 and is well problems in measuring outcomes and 121. Aberdeen’s SOA contains several below target. in attributing any changes to specific broad aspirations on the continuing partnership activities. As a result, development of the local economy. 4. Improve the efficiency of this section of the report can only There is clear evidence that, despite planning decision-making. seek to provide a high-level picture of the general recession, Aberdeen’s Aberdeen has an up-to-date trends over the past decade, rather economy is still relatively strong. For Development Plan, covering all than a comprehensive assessment example, while employment levels parts of the city. The SOA also of community planning’s impact on have fallen slightly since 2009, they are provides evidence that delays in Aberdeen’s communities. still significantly higher than in other processing planning applications Scottish cities (Exhibit 8, page 35). have been reduced. 34

Exhibit 7 Outcome gap between most and least deprived areas over last ten years Economy and Education Scotland Aberdeen City • Percentage of working age people claiming key benefits • Percentage of school leavers in sustained positive destinations • S4 – average tariff scores

• S5 – average tariff score

• S6 – average tariff scores

Health Scotland Aberdeen City • Hospital admissions for coronary heart disease – rate per 100,00 • Low weight live singleton births as a percentage of all live singleton births1 • Smoking in pregnancy – percentage of woman smoking at booking

• Emergency hospital admission rate per 100,000

• Male life expectancy • Female life expectancy

• Emergency hospital admission, 65 yrs and over: rate per 100,000

Narrowing gap Unchanged Widening gap

Notes: 1. Very slight reduction for Scotland. 2. The above analysis uses indicators that are available at the data zone level to compare the average outcome results for the 20 per cent most deprived data zones and the 20 per cent least deprived. Where available this is based on data covering the ten-year period 2002/3 to 2010/11. Source: Audit Scotland, 2012

5. High-quality employment the number of people claiming unexplained halving of the opportunities. In general, Jobseeker’s Allowance has number of childcare places within performance in this area confirms increased markedly and is now the city. This suggests that the the sustained strength of above target. data is not reliable. Aberdeen’s economy. Average earnings have continued to rise, 6. Providing affordable, quality 7. Sufficient skilled people to although the gap between male childcare places. The SOA meet needs of local economy. and female earnings has widened. Progress Report does not provide The SOA Progress Report The number of people claiming a a clear picture of performance does not provide a clear picture range of benefits has either fallen in this area. No target has been of performance in this area. or, at a time of general recession, set since 2009/10 and there It includes a target based on remained stable. However, appears to have been a sharp, job density and the number of Part 6. Impact and outcomes 35

hard-to-fill vacancies. But no their own home, rather than in However, there is evidence that performance data is provided hospital or in a care home. The more needs to be done to help after 2009. number of delayed discharges, people receive care at home. defined as when patients have There has been a significant rise Limited progress has been made to stay in hospital more than in the proportion of people aged on Aberdeen’s main SOA health six weeks until appropriate over 65 with intensive needs who priorities home care or social care can receive care at home, but this still 123. Audit Scotland’s report Health be organised, has been held at lags behind Scotland’s other cities inequalities in Scotland highlighted minimal levels in recent years. (Exhibit 9). the lead role that CPPs have in bringing together all relevant local organisations to address health Exhibit 8 inequalities. The report concludes Employment rate that current performance measures Aberdeen has maintained a significantly higher employment rate than do not provide a clear picture of Scotland’s other cities. progress and that CPPs’ reports on delivering their SOAs are weak in the quality and range of evidence 82 Aberdeen used to track progress in reducing 80 Edinburgh health inequalities. It highlights that 78 differences among SOAs mean that 76 Glasgow 74 a Scotland-wide picture is hard to Dundee identify. The report recommends that 72 CPPs ensure partners have a shared 70 understanding of health inequalities, 68 their respective roles and the 66 64

shared resources available, and Per cent of working population that they involve local communities 62 60 in initiatives to tackle health 2004 2005 2006 2007 2008 2009 2010 2011 inequalities. Year

124. Aberdeen’s SOA Progress Source: Scottish Neighbourhood Statistics/Audit Scotland, 2012 Report provides examples of the initiatives being carried out by NHS Grampian, Aberdeen Council and their partners to improve the health of the local population. However, Exhibit 9 most of the targets and performance Care at home measures focus on activities, rather Fewer people aged 65 or over, with intensive needs, receive care at home than their impact on improving health in Aberdeen compared with other Scottish cities. outcomes. 45 Glasgow 125. The preface to the section of 40 Dundee the SOA dealing with National 35 Outcome 6, ‘We Live Longer, Edinburgh 30 Healthier Lives’, identifies four Aberdeen key local priorities: 25 20 1. Responding to an increasingly 15 elderly population. The SOA 10 recognises that an ageing Per cent receiving care at home population is an issue that needs 5 0 to be addressed, with older 2002 2003 2004 2005 2006 2007 2008 2009 2010 people being more frequent Year users of health services. Two aspects are mentioned: delayed Source: Scottish Neighbourhood Statistics/Audit Scotland, 2012 discharges and trying to ensure that patients can receive care in 36

• 2. Reducing alcohol- and drug- Exhibit 10 related harm. The Aberdeen City Alcohol related hospital admissions Drugs and Alcohol Partnership Rate of alcohol-related admissions per 100,000 population – city comparison. has published a Drug Strategy 2011–21 and an Alcohol Strategy 1,600 2009–19. These set out a wide Glasgow range of actions, aimed at 1,400 Aberdeen increasing awareness, reducing availability and improving 1,200 Dundee treatments. However, neither 1,000 Edinburgh strategy contains any measurable targets on reducing the impact of 800 Worst performing

drugs and alcohol on people living 600 Top performing in Aberdeen. 400 Number per 100,000 population The SOA identifies that the 200 proportion of the population 2005 2006 2007 2008 2009 2010 hospitalised for drug- and Year alcohol-related conditions is worse than the Scottish average. Source: Scottish Neighbourhood Statistics/Audit Scotland, 2012 However, it does not contain any targets for reducing the number of hospitalisations. Instead, it has some activity- low weight births. Despite this, Progress has been variable in based targets, such as reducing SIMD data for 2012 shows that relation to community safety the number of people waiting health inequalities have worsened priorities for drug treatment services in Aberdeen, with the number of 126. The SOA identifies seven and increasing the number of data zones that are among the community safety priorities. The alcohol brief interventions. The 15 per cent most health deprived adequacy of targets and outcome SOA Progress Report shows in Scotland increasing between measures related to these priorities that there has been a dramatic 2004 and 2012 from 39 to 48. is variable. Similarly, performance increase in the number of alcohol Clearly, it can take many years, is mixed between priorities and brief interventions, although if not decades, to address long- outcome measures: the impact of this is not clear. term issues. However, we found Evidence obtained by our audit no evidence that the gap in life • 1. The organisation of child also suggests that there has been expectancy has closed over the protection services. The SOA set some success in recent years in past decade. On average, people two targets for 2009 and 2010, reducing the number of alcohol- living in the more deprived parts aimed at supporting children related hospital admissions. After of Aberdeen still live about 5.6 and parents to stay together and a rise in earlier years, this has years less than their neighbours being re-registered on the child now fallen back to the levels in the least deprived parts of protection register. The targets for reported in 2005. However, the city. both outcomes were not achieved this is still among the highest in either year. in Scotland and well above the • 4. Addressing the needs of rates reported for Edinburgh and more vulnerable communities. • 2. Controlled drugs. The SOA Dundee (Exhibit 10). The SOA defines these includes three targets aimed at vulnerable communities as reducing the impact of drugs on • 3. Tackling health inequality. The including gypsies, travellers, community safety: increasing SOA identifies significant health people who are homeless, the number of recorded drugs inequalities within Aberdeen. prisoners, and young people offences year on year; increasing However, it contains few targets leaving care. But it contains no the weight of drug seizures; and that are directed at reducing health targets or performance reducing the number of drug- specific health inequalities. Our measures relating to gypsies, related deaths. The 2010/11 SOA audit has obtained evidence travellers, people who are Progress Report shows that drug which suggests that progress homeless, prisoners, or young deaths have steadily decreased has been made in reducing people leaving care. since 2007, but performance inequalities in areas such as against the other two measures smoking during pregnancy and in has been less clear. Part 6. Impact and outcomes 37

• 3. Antisocial behaviour. The Exhibit 11 SOA aims to reduce the impact Crime rates per 10,000 population of antisocial behaviour on the Aberdeen’s crime levels have decreased significantly – city comparison. community. A target was set to achieve a year-on-year reduction of antisocial behaviour crimes 3,500 Glasgow such as vandalism and underage Aberdeen drinking. Conversely, a target was 3,000 also set to increase the number Edinburgh of racially motivated incidents 2,500 Dundee reported to the police, which partners believe indicates an 2,000 increase in confidence by victims of these crimes. The 2010/11 SOA 1,500

Progress Report shows that most Crimes per 10,000 population antisocial behaviour targets are 1,000 being met. Longer-term trend data 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 is not readily accessible for all of Year these measures. However, in June 2012, the Scottish Government Source: National crime statistics, Scottish Government website published a crime statistics bulletin which shows that racial incidents significantly increased between 2004/05 and 2010/11. three targets were met in three either improved or are around the out of four years, while the target same level as they were in 2002 • 4. Domestic abuse and for fire-related injuries was met (Exhibit 12, overleaf). This increase 5. Serious and violent crime. only in one year. is thought to reflect a more robust The SOA includes a target to enforcement campaign by reduce the impact of serious • 7. Sex industry. The Community Grampian Police. and violent crime, including Safety Partnership’s strategic domestic abuse incidents. The assessment outlines the health There has been limited success SOA Progress Report shows and community safety issues in raising attainment levels or that, since 2007, the targets to related to the sex industry. reducing inequalities in education reduce serious and violent crime However, although the SOA 129. The SOA contains a series of were met in each year, with the includes this as a priority, it does targets under National Outcomes 3 exception of 2009/10. However, not clearly identify outcomes, and 4: ‘We are better educated, more it also shows that the number of targets or performance measures. skilled, renowned for our research reported domestic abuse incidents and innovation’ and ‘Our children increased each year. It is argued 127. In line with national trends, are successful learners, confident that this reflects an increased overall crime rates have fallen individuals and responsible citizens’. confidence from victims in significantly over recent years The preface to these sections is reporting these incidents. (Exhibit 11). The results from the last written in fairly general terms, two Scottish Neighbourhood Surveys referring to broad initiatives such • 6. Fire safety. The SOA includes also suggest that people in Aberdeen as the Curriculum for Excellence one local outcome which aims to now feel safer from crime. and aspirations to develop the collectively reduce the number professional development of and impact of accidental dwelling 128. While the SOA identifies a link teachers. The SOA identifies five house fires, fire-related injuries between alcohol and drug misuse outcomes and related targets. We and wilful fire-raising incidents. A and crime levels, it does not include found that performance against these direction of travel target was set targets to reduce drunkenness was mixed: to achieve a year-on-year reduction offences or drug crimes. Between in the number of accidental 2002 and 2010, the number of • 1. Attainment levels. Three main dwelling house fires, wilful fires, recorded drunkenness offences targets are set for attainment home fires resulting in injury or increased significantly in Aberdeen, levels in Aberdeen’s publicly death and fire-related injuries. The although this negative trend slightly funded secondary schools. The SOA Progress Report provides improved in 2011. This contrasts SOA Progress Report for 2010/11 performance data for 2007/08 to with other Scottish cities, where shows that one of these targets 2010/11. This shows that the first drunkenness offences in 2011 have has been met. 92 per cent of S4 38

pupils achieve five or more level All the performance measures deprived and affluent areas have 3 awards. The other two targets, are provided for Aberdeen as a been reduced. Some progress for the numbers of S4 pupils whole, rather than distinguishing has been made at S4 level, but achieving English and Maths at between deprived and affluent the gaps in attainment levels for level 3, and the numbers of S5 areas of the city. There is S5 and S6 are greater than they pupils achieving five or more level little evidence that the gaps were in 2004/5 (Exhibit 13). 5 awards, have not been met. in attainment levels between

• 2. Number of school leavers in positive destinations. The SOA Exhibit 12 set a target that, by 2010/11, 90 Drunkenness offences per 10,000 population per cent of secondary school The number of drunkenness offences reported has increased significantly in leavers would be going to Aberdeen since 2002 – city comparison. positive destinations, such as employment, college or university. 40 There is no reference to this target Glasgow 35 in the SOA Progress Report for Aberdeen 2010/11. 30 Dundee 25 • 3. Skills shortages. The SOA Edinburgh refers to ‘well-documented’ 20 Worst performing skills shortages and employers’ 15 concerns about a lack of core Top performing skills. No targets are provided 10

in this part of the SOA for Offences per 10,000 population 5 addressing these concerns. 0 Elsewhere the SOA Progress 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 Report shows that the number Year of hard-to-fill vacancies in 2009 was 27, within the target of 31.4. Source: Recorded Crime in Scotland publication (Scottish Government) obtained from Scottish It is not clear what this means. Neighbourhood Statistics website Perhaps more importantly, there is no reference to feedback from employers on any continuing concerns. Exhibit 13 • 4. Positive inspection reports. School attainment levels – gap between 20 per cent most deprived and The SOA set a target that 90 per 20 per cent least deprived cent of schools being reviewed There is no clear evidence that the gap in attainment levels has narrowed. by Her Majesty’s Inspectorate of

Education (HMIE) would receive 350 positive reports. This target has S4 Tariff Gap not been met, with 67 per cent 300 S5 Tariff Gap of schools inspected in 2010/11 250 S6 Tariff Gap receiving positive HMIE reports. 200 • 5. Reducing inequalities. While the SOA identifies Aberdeen 150 Attainment gap as among the most divided in 100 Scotland for education outcomes, it sets no targets for reducing 50

these inequalities. The SOA 0 refers to the Northfield ‘whole- 2004/05 2005/06 2006/07 2007/08 2008/09 2009/10 2010/11 systems’ approach pilot, aimed Year at raising attainment levels in a deprived area, but contains no Source: Audit Scotland, 2012 specific targets for the project. Part 6. Impact and outcomes 39

There is little to show that any significant progress has been made in achieving CPA’s environmental objectives 130. The SOA contains seven targets relating to CPA’s environmental objectives. In contrast to other SOA themes, many of these measures relate to high-level outcomes and community impact. However, in almost all cases, the SOA Progress Report for 2010/11 contains no up-to-date targets or performance information. For example, no data on the city’s carbon footprint has been available since 2006. Similarly, data on the use of public and private transport has not been available since 2008.

131. There has been success in recycling domestic waste. Since 2007/08, this has almost doubled to 31.7 per cent, above the target set of 27 per cent. This is in line with improvements made by other councils throughout Scotland. It is also not clear how this target relates to partnership working with other public organisations.

132. Overall, however, the general lack of performance data suggests that environmental matters have not been treated as a local priority. 40 Part 7. Improvement agenda Part 7. Improvement agenda 41

133. Continuous improvement in it has set itself a demanding Performance management and use public services and strong local improvement agenda and much of resources leadership and governance are still needs to be fully established central elements of the joint Scottish before it can demonstrate clearly • For each strategic priority, Government and COSLA Statement how it is improving outcomes for its set performance targets that of Ambition for Community Planning. communities. provide a stronger focus on That document and the Scottish outcomes and community Government’s priorities for public 136. The audit has identified a impact. service reform in response to the number of areas where improvement Christie Commission report share is required by the CPP. These are set • Ensure that reliable common themes: out below. performance data is available to match targets. Avoid • A decisive shift towards Strategic direction setting targets that cannot be prevention. monitored. • Identify a limited number of • Greater integration of public strategic priorities on which the • Assess the impact made by services at local level, driven community planning partnership Fairer Scotland and Challenge by better partnership , greater can make an impact. Funds. collaboration and effective local delivery. • Ensure that CPA has a strategic • Identify the total resources oversight of all significant available to all partners and • Greater investment in the people partnership working to help determine how resources who deliver services through ensure that there is a match can be targeted and aligned enhanced workforce development between resources and towards agreed priorities and and effective leadership. strategic priorities. outcomes.

• A sharp focus on improving • Review the approach to Impact and outcomes performance. community engagement to help avoid any duplication of • Assess the impact of the 134. This is a stretching and effort by different organisations. ‘whole-systems’ approach, demanding agenda. It will require currently being piloted in strong and sustained leadership from Governance and accountability education and community public sector leaders to deliver the safety. ambitious step change in performance • Review the level of from community planning that are representation of partner 137. We will be liaising with the board required to respond to: organisations to help ensure to discuss this improvement agenda that CPA Board members have and will be monitoring the progress • the financial pressures facing sufficient seniority to contribute that the CPP makes in taking forward public services’ to decision-making. these improvement actions.

• rising demand owing to • Strengthen the scrutiny of demographic change and public performance, by regularly expectations providing monitoring reports to theme groups and to the CPA • the deep-rooted social problems Board. that affect many parts of Scotland. • Hold partners to account for 135. CPA has shown a high level their contribution to shared of self-awareness, with two objectives and use this to help external reviews commissioned drive improvements. over the past two years. It has made many significant changes in recent months and now has many of the fundamental structures and processes in place. However, Community planning in Aberdeen

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