Scottish Government

Dr Brian Henderson, Reid-Howie Associates
ISBN 0 7559 2996 9 (Web only publication)
This document is also available in pdf format (120k)

This research was commissioned by the Scottish Executive in March 2005 and was designed to contribute to the implementation of a Ministerial commitment to promote Local Compacts in Scotland and to promote good practice. It was intended that the research would identify the extent to which Local Compacts have been developed and implemented. It would assess their effectiveness and identify barriers which hinder Local Compact development and implementation, as well as good practice to support their development and implementation across Scotland.

Main Findings

• A Compact is an agreement which defines and manages the relationship between the voluntary sector and one or more public sector bodies. These take a variety of forms, but none are legal documents. Compacts are, in effect, non-binding agreements entered into by the partners.
• The Scottish Compact was agreed in 1998, and re-launched in 2004. A national compact also exists in England. These agreements are supported by detailed implementation documents.
• Two key lessons were identified from the Scottish Compact, that an agreement cannot on its own bring about change and that a detailed implementation plan, supported by a multi-agency group, is required.
• Since 1998, Local Compacts have been developed in England. These take a number of forms, but many are between the voluntary sector and local authorities (although current good policy suggests that multi-agency approaches are preferred).
• There is a range of assistance available to local partners in England, including guidance and a national development officer, based at NCVO. This assistance has been used by partners in Scotland.
• Most Local Compacts have been developed in a similar way. This has involved the identification of the need for a Compact, the drafting process, a public and internal launch, the development of detailed implementation agreements and, finally, evaluation and review.
• The development of Local Compacts in Scotland has been slower than in England, but at the time of the research, a small number had been published and more were in development. Most are multi-agency, and being developed within the framework of Community Planning.
• It is clear that, in some areas, Local Compacts are unlikely to be considered as the view of the partners is that the relationship between them is effective.
• It is suggested that some additional assistance could be made available to support the process of developing Local Compacts, including a stronger lead being taken by the partners in the Scottish Compact, the development of Scotland-specific guidance, the provision of funding (for staff resources and to meet voluntary sector costs), the establishment of a national development officer post, the development of a focus on equality issues and the promotion of information sharing through a dedicated website and national conference.

Introduction

The research examined in detail the development of both National and Local Compacts ("Compacts") in Scotland and England.

Methodology

The research was largely qualitative and examined the views of those with a key role in the development of Compacts. Nine partnerships were included in the research. The methods used included:

• Desk research.
• Face to face, telephone and group discussions with local partners.
• Telephone discussions with four national umbrella organisations.
• A postal survey of CVS and e-mail contact with local authorities.
• A telephone survey of 44 voluntary organisations in four areas.

Overall findings

A Compact is an agreement which defines and manages the relationship between the voluntary sector and one or more public sector bodies.

There are two "levels" of Compact: "National" Compacts and "Local" Compacts. Local Compacts typically involve either a single, or, increasingly, a group of public bodies and representatives of the voluntary sector at a local level.

Compacts are not legal documents. Compacts are, in effect, non-binding agreements entered into by the partners.

A "Compact" generally consists of more than one document. The Compact itself (or Compact Agreement) generally covers the main points of agreement between the partners, their shared objectives and aspirations. Detailed Implementation Agreements are generally produced once the Compact has been agreed, and cover, for example, issues such as communication, funding, engagement, and equalities.

National compacts

The National Compact in Scotland was agreed in 1998, and re-launched in 2004. The Compact is supported by further guidance, and detailed agreements. Two key lessons were identified in relation to the Scottish Compact: that a Compact in itself cannot bring about change and that there is a need for a detailed action plan and a group to take this forward.

Compacts in England

Following the launch of the National Compact in England, a number of areas began to develop Local Compacts. Initially, these were usually between local authorities and the voluntary sector.

To support the development of Compacts, funding was provided to establish a post as early as 1999. Since then, the Home Office and Compact Working Group ( CWG) have produced a significant volume of guidance, as well as promotional material.

At Summer 2005, more than 70% of local authority areas had some form of Local Compact in place. There are a wide number of models in place, although there is a good deal of consistency in how these were developed.

At the time of this research, the Home Office was consulting on the development of a Compact Plus model, which seeks to build on the current Compacts. The Home Office identified a range of shortcomings with current Compacts, including:

• Detailed implementation agreements are lengthy, complex and hard to interpret.
• Evidence of poor practice.
• No mechanism to reward good practice, or deal with poor practice.

There are also a range of other issues evident, including:

• The range of models.
• In some areas, there is more than one Compact in operation.
• Some Compacts, while launched, are not "live", and are not currently being used.
• A concern among some voluntary organisations that Compacts are not proving to be effective.

Lessons identified from the development of Compacts in England include:

• The establishment of the CWG and the development post.
• The usefulness of Home Office guidance on the development of Compacts.

Compacts in Scotland

The development of Compacts in Scotland has been much slower than in England.

The current research identified that relationships between the voluntary sector and public bodies was generally good. While funding may be the most visible aspect of the relationship, this is only one of a considerable array of forms of contact.

Over the period since the agreement of the Scottish Compact in 1998, there has been a wide range of both organisational and policy changes, including the introduction of Community Planning and Community Health Partnerships. The need for a strong relationship between the voluntary sector and public bodies is now considered essential for effective government and policy development at a local level.

There are a range of management arrangements currently in place (including Compacts). At the time of this research, there were only a small number of Compacts, with a handful more in development. In some areas there is no intention to develop such an agreement, as there is seen to be no need.

The process of developing Compacts

Evidence gathered suggests that each of the Compacts came about for broadly the same reason: a recognition of a need for a more formal, more structured relationship between the partners (although relationships were considered to be good).

Virtually all of the Compacts developed to date have been multi-agency, and this is the preferred approach of both SCVO and the Scottish Executive.

The first stage in each area was the identification of the need for a Compact, generally involving some form of wider consultation, for example, through an event. These events were seen as effective in gathering views and raising awareness. In most cases, they provided a clear message on the direction the Compact should take

The main area of apparent difficulty was in engaging the voluntary sector. There were also practical issues evident in rural areas. It is clear that most partnerships went to considerable lengths to give the sector the opportunity to become involved.

The second stage in each area was the drafting of the Compact. The drafting process appears, in most cases, to have been iterative, and to have taken some time to complete. In most areas, drafts were circulated for comment, or considered at further events.

The extent to which individual agencies were involved in the drafting varied, as did the level of resources applied. In some areas, individuals drafted the agreement, in others, committees (while in one area, an external contractor did this).

The content of the Compacts published to date is consistent, although the mode of expression varies with local circumstances.

In each area, an action plan was prepared to accompany the Compact, supported by a group to take the work forward.

The third stage in each area was the launch of the Compact. Typically, this took place in a public forum, and involved key local figures. In all cases, the public launch was also accompanied by a "launch" or wider awareness-raising within partner agencies.

The fourth stage, which few areas have yet reached, is the development of Detailed Implementation Agreements. The final stage, which no areas have reached, is evaluation and review.

Key Lessons from Compact Development

There are a range of key lessons evident:

• The decision to develop a Compact can only come from local partners who approach the process with an open mind, and a willingness, if necessary, to compromise.
• There is a need to ensure that a Compact is the most effective approach.
• There is a strong view that multi-agency Compacts are the preferred option.
• Compacts appear to work best when grounded in wider policy and administrative structures.
• Compact development is very slow, resource intensive but under-resourced.
• Project management approaches are being used.
• The role of the chair can be critical.
• The commitment shown by staff in providing input to compact development outwith their own area has been an important factor.
• Perhaps the single most critical lesson identified has been the need to ensure that the agreement is owned by the partners and their constituencies.
• There are often significant difficulties in reaching the wider voluntary sector.
• Funding has by no means dominated local concerns.
• Equalities issues do not appear to have been successfully addressed.
• It is clear from experiences in England that the period following the launch of the Compact is critical in ensuring that momentum is not lost, and that the Compact does not drop from view.

Additional assistance

A number of suggestions are made for additional assistance which could support the Local Compact Development process:

• Clearer leadership from the Scottish Executive, SCVO and CoSLA.
• The development of Scottish guidance.
• The development of a national support post.
• The need for promoting equality.
• Direct support for the costs of participation of the voluntary sector.
• Direct support for posts to be created shared between local partners to take forward Local Compact development.
• A national conference.
• A specific Local Compact website.
• The development of a glossary.

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