T hird Sector Research Centre Research Report (86) Commissioning across government: review of evidence Tony Bovaird, Helen Dickinson and Kerry Allen August 2012 Project for National Audit Office Revised version of Final Report (submitted 17 May 2010) Research Report Report Research ( 86 ) August 2012 2012 August Contents Introduction ............................................................................................................................................ 5 Approach and methods ........................................................................................................................ 6 Scoping phase ......................................................................................................................................... 6 Scanning and analysing the literature ..................................................................................................... 6 Updating government commissioning models......................................................................................... 7 What is commissioning? ...................................................................................................................... 8 Lack of agreed definition ......................................................................................................................... 8 Drivers of interest in commissioning ........................................................................................................ 8 Definitions of commissioning ................................................................................................................. 10 Function – commissioning, procurement, purchasing and contracting ................................................. 10 Means or ends? ..................................................................................................................................... 12 Distinct from provision? ......................................................................................................................... 13 Single or multi-agency? ......................................................................................................................... 15 The role of the citizen ............................................................................................................................ 15 Levels of commissioning ....................................................................................................................... 16 Summary ............................................................................................................................................. 17 Approaches to commissioning .......................................................................................................... 18 Current models of commissioning .................................................................................................... 19 Joint Planning and Commissioning Framework for Children, Young People and Maternity Services (HM Government, March 2006) ............................................................................ 20 The commissioning cycle within the model ............................................................................ 20 What is included within the term ‘commissioning’ in the model ............................................. 20 The performance management regime .................................................................................. 20 Evidence on the performance of the commissioning approach to date ................................. 21 Outcome orientation of the model .......................................................................................... 21 Role of the third sector in the model ...................................................................................... 22 Achieving Better Outcomes: Commissioning in Children’s Services (2009) ......................................... 22 The commissioning cycle within the model ............................................................................ 23 What is included within the term ‘commissioning’ in the model ............................................. 23 Evidence on the performance of the commissioning approach to date ................................. 24 The performance management regime .................................................................................. 24 Outcome orientation of the model .......................................................................................... 24 Role of the third sector in the model ...................................................................................... 24 The National Commissioning Framework (NCF) for young people, April 2010 .................................... 25 Commissioning cycle in the model ......................................................................................... 25 Evidence on the performance of the commissioning approach to date ................................. 26 Performance management regime ........................................................................................ 26 1 Outcome orientation of the model .......................................................................................... 27 Role of the third sector in the model ...................................................................................... 27 DCSF schools commissioning pilot ....................................................................................................... 27 Health reform in England: update and commissioning framework – Annex: the commissioning framework (DH, 2006) ................................................................................ 28 The commissioning cycle within the model ............................................................................ 29 What is included within the term ‘commissioning’ in the model ............................................. 29 The performance management regime .................................................................................. 29 Evidence on the performance of the commissioning approach to date ................................. 30 Outcome orientation of the model .......................................................................................... 30 Role of the third sector in the model ...................................................................................... 30 The Commissioning Framework for Health and Well-being (DH, 2007b) ............................................. 31 The commissioning cycle ....................................................................................................... 31 What is included within the term ‘commissioning’ in the model ............................................. 32 The performance management regime .................................................................................. 32 Evidence on the performance of the commissioning approach to date ................................. 32 Outcome orientation of the model .......................................................................................... 33 Role of the third sector in the model ...................................................................................... 33 World class commissioning (Department of Health, 2007c) ................................................................. 34 The commissioning cycle within the model ............................................................................ 34 What is included within the term ‘commissioning’ in the model ............................................. 34 The performance management regime .................................................................................. 35 Evidence on the performance of the commissioning approach to date ................................. 36 Outcome orientation of the model .......................................................................................... 38 Role of the third sector in the model ...................................................................................... 38 Office of Government Commerce Procurement Model ......................................................................... 38 What is included within the term ‘commissioning’ in the model ............................................. 39 CLG guidance on strategic commissioning ‘Creating strong, safe, prosperous communities’ (CLG, 2008) ......................................................................................................................... 39 The commissioning cycle and what is included within ‘commissioning’ in the model ............................................................................................................................ 40 The performance management regime .................................................................................. 41 Evidence on the performance of the commissioning approach to date ................................. 43 Outcome orientation of the model .......................................................................................... 43 Role of the third sector in the model ...................................................................................... 44 IDeA Model ............................................................................................................................................ 44 The commissioning cycle within the model ............................................................................ 44 What is included within the term ‘commissioning’ in the model ............................................