PART III. IMPLEMENTATION
CHAPTER SEVEN DEVELOPMENT AND OPERATION OF WFF IN LOCAL AUTHORITIES
7.1 INTRODUCTION
This section explores the development and implementation of Phase 1 of WFF and picks out the key factors that influenced success. Further information is in Technical Annex T7.
Management of WFF at local level rested with Economic Development teams in all but one area, with the day to day project management driven forward by a WFF Coordinator. Steering groups comprising of key partners were established to support the strategic development and implementation of the fund.
Development of WFF projects and services largely took place in 2004/05, with a lengthy lead in time within some authorities. Projects were developed in response to local need, following consultation and mapping exercises. The approach in each authority continued to be flexible throughout Phase 1 with additional projects and services developed as required over the 2 years. Good practice from the pilot stage and between areas was shared during Phase 1 in order to inform development and implementation.
Delivery of individual projects on the ground was largely via social economy organisations, depending on the available expertise and capacity of these locally. A range of partner agencies involved in key services was identified and used to secure referrals to and from WFF.
7.2 MANAGEMENT STRUCTURES
7.2.1 The Management Team
In all but one area, WFF programmes were based within Development or Economic Development Departments of local authorities. Focusing services on the end goals of progress towards work, education or training, rather than intermediate services such as childcare provision per se, appears to have been successful. This approach: focused the remit of projects clearly upon employability and getting people into appropriate work, training and education; clearly signalled to clients, other agencies and other local authority departments that the aim of support was improved employability; was able to build upon existing skills in employability and in partnership working in the area of employability and upon existing partnerships with key service providers; and used staff who 'spoke the same language' with other employability orientated agencies
As the programme focused on both employability and childcare issues strong partnership working was required between economic development and childcare departments (usually Education and Social Work) in order to develop an effective approach.
Economic Development officers in most areas faced a steep learning curve in developing their knowledge of childcare services and the childcare barriers faced by parents returning to work. In part this contributed to the initial delays in project start-up, as understanding was being developed, appropriately experienced staff were brought into the LAWFF teams and appropriate partnerships were formed.
KEY LEARNING Placing the development and implementation of WFF in Development/Economic Development departments appears to have been a successful strategy, particularly due to the primary focus on employability and related outcomes. In the early stages of WFF being developed in an area it is important that Economic Development and Education and Social Work or Children and Families Departments communicate fully. Early consultation with a range of organisations is encouraged in order to share expertise; identify gaps in existing service provision; and develop ideas for WFF services. Throughout the operation of WFF it is essential that close strategic and operational partnerships are developed and maintained between the LAWFF teams, employability agencies operating locally, childcare partnerships and relevant agencies (including those within a LA) and other childcare services. |
7.2.2 Steering Groups
WFF aimed to build upon existing employability and childcare services in order to fill gaps and supplement existing work being carried out by a range of partners. The wide remit of WFF in encompassing employability and childcare, necessitated the involvement of a wide range of partners, including Jobcentre Plus, Childcare Partnerships, Scottish Enterprise and Health and Social work departments.
In order to ensure effective partnership and collaborative working, local steering groups were established to oversee the development and ongoing implementation of WFF projects. All areas operated a core steering group composed of interested members, both internal and external to the LA. It should be noted that in a small number of areas these groups did not function as effectively as they might.
KEY LEARNING A steering group, composed of both local authority and external representatives which meets regularly, is beneficial in supporting the development and operation of WFF. Steering groups should establish terms of reference at an early stage, which outline the aims, remit, roles and responsibilities of partners. While taking a strategic perspective of local service needs and provision, steering groups should also be focused on taking forward action at operational level rather than becoming 'talking shops'. The establishment of such working groups can also ensure buy in from local staff on the ground, and Steering Group members should have sufficient influence on local services to ensure that agreements between the partners are delivered. |
7.3 DEVELOPMENT OF WORKING FOR FAMILIES
In order to develop a range of projects that would complement existing services and respond to local need, extensive consultation and mapping exercises were carried out in each local authority. This process continued throughout Phase 1 as client requirements changed and the need for additional services was identified.
7.3.1 Partnership Working
Services in each local authority area were developed in partnership with a range of existing service providers. Effective partnerships with other services were vital in order to:
- develop projects and services efficiently and effectively and avoid duplication;
- provide appropriate services for clients with multiple, specialised support needs ( e.g. for whom support for skill development, substance abuse and childcare issues could each best be provided by a different agency);
- attract the referral of clients from other agencies to WFF.
Many areas carried out extensive mapping exercises of existing services at the beginning of the development period in order to determine availability of existing childcare provision and employability related support, and to identify any gaps that could potentially be filled by WFF. These areas were able to strategically determine what projects needed to be developed from an early stage. This generally avoided establishing projects that had to be later abandoned due to lack of demand, problems with delivery organisations etc. Other areas that did not carry out such a thorough exercise at the beginning, often found that such a review of services became necessary and carried out the mapping at a later stage.
KEY LEARNING Effective and efficient partnership working is key to the success of WFF. Early consultation with a range of organisations is encouraged in order to share expertise; identify gaps in existing service provision; and develop ideas for WFF services. Throughout the operation of WFF it is essential that close strategic and operational partnerships are developed and maintained between the LAWFF teams, employability agencies operating locally, childcare partnerships and relevant agencies (including those within a LA) and other childcare services. |
7.3.2 Time scales for development
Local authorities also used lessons from the WFF pilot in order to develop their approach. Good practice was shared between authorities throughout, largely through the use of regular meetings of the Coordinators and also through a 'Sharing Good Practice' conference held in autumn 2005.
There was a long lead-in time and delays in the development and implementation of projects, with many not fully operational until 2005/06. This was due to a range of factors including lengthy recruitment times for key personnel, the time taken for lead departments to establish functional relationships with childcare partnerships and delays in establishing contracts and Service Level Agreements with external providers. In particular, childcare infrastructure projects could be expensive, have a long development time and be subject to considerable paper-work with delays experienced where approval was required for childcare projects from the Care Commission.
KEY LEARNING Greater recognition should be given to the long lead-in and start-up times required for programmes such as WFF, and individual projects, with account taken of the impacts upon budgets, timing of the programme and expected outcomes. Authorities being asked to implement approaches, such as WFF, should ensure that this long lead-in time is allowed for setting up, including the recruitment of core staff, consultation, the development of specific projects and the negotiation of agreements/contracts. It is essential to learn lessons from the implementation of similar previous initiatives in order to help develop a successful approach. Programmes should be flexible enough to accommodate changes throughout the programme in order to be responsive to client needs and changing circumstances. |
7.4 IMPLEMENTATION AND OPERATION
7.4.1 Delivery Organisations
Individual WFF projects were largely delivered by social economy organisations out with LA departments. This reflects the existing expertise and capacity of external providers in some areas to deliver on behalf of WFF. Some external providers were national agencies operating locally, while others were local bodies. Setting up a service from scratch, as opposed to buying into an existing similar service from within or out with the local area, could also be more costly and time-consuming.
KEY LEARNING Areas should carry out a survey of existing service providers and establish what delivery capacity already exists within their area. Consideration needs to be given to whether providers are to be internal (within the LA), or external ( e.g. a social economy organisation). Early negotiations with potential delivery organisations are advised. Where there are gaps in required provision consideration should be given to bringing in a suitable national agency which is willing to deliver services locally. In order to be able to start WFF projects quickly and efficiently, potential WFF delivery organisations should, normally: be an established provider; have a background and expertise in the service; have the capacity to deliver at the quality and quantity levels required; and, have a suitable management infrastructure. |
7.4.2 Referrals from Agencies
Partnership working was crucial to the WFF approach, with client recruitment based largely on receiving referrals from a range of partner organisations. WFF teams established strong links at both strategic and operational levels with potential referral agencies in order to broaden knowledge about WFF and the services on offer and to facilitate client referrals. Two-way referrals also took place, with WFF linking clients in with appropriate service provision as required.
KEY LEARNING In order to maximise the number of agencies that will refer clients to WFF, national level consultation, events and promotion of WFF to key agencies may be useful. Area Co-ordinators and Area Key Workers also have an important role in developing and sustaining contacts with agencies at the local level. Having representation from key referral agencies on area steering groups and developing good relations with these members may also be of benefit. Organisations should also consider where other WFF areas are gaining their clients from ( e.g. do they have relatively more referred to them from Job Centre Plus), perhaps using the on-going national evaluation data, and learn from this experience elsewhere. |
7.4.3 Marketing and Publicity
Marketing and publicity was targeted at both potential referral agencies and potential client groups. It was usually carried out both at LA level and sub-area level. A range of marketing methods were employed, supported by the use of printed materials such as leaflets and posters.
Effective marketing of services using a range of methods has proved important to WFF however this alone is unlikely to result in significant success. Materials such as leaflets need to be backed up active promotion of services by projects themselves, for example Key Workers attending open days and giving talks to partner providers.
KEY LEARNING Having time at the beginning of projects to carry out development and marketing work in local communities can be valuable in building the reputation of a programme. It is important that this is built on consistently through the implementation period. High expenditure on 'glossy' material and logos needs to be monitored properly to ensure they are effective and represent good value for money. Distinct branding of WFF can be useful in establishing an effective presence within a community, although it is likely that clients will identify with the actual service provider more closely. |
7.4.4 Flexibility
The WFF programme was implemented by the Scottish Executive in a flexible way, allowing local authorities to develop proposals and projects to meet the needs of their areas and to adapt their proposals in the light of experience. This was particularly important as WFF was a new programme where there had been little experience of linking childcare and employability on this scale. This flexibility sometimes led to requests to the Executive as to whether certain activities were acceptable, and occasionally there were limited delays in agreeing this, but this became less of an issue over time as experience grew.
7.5 LEARNING AND COMMUNICATION
An important feature of the implementation of WFF was the continuous learning and sharing of information, experience and ideas. The Scottish Executive facilitated quarterly meetings of the co-ordinators of the ten local authorities to discuss common issues. A 'Sharing of Good Practice' conference was held part-way through Phase 1 involving a range of staff from all ten LA areas. Statistics on client numbers, characteristics, sources of referrals etc. were regularly shared, usually on a quarterly basis based upon the Quarterly reports, so local authorities and projects could identify trends and patterns across the whole of WFF, compare their own figures and take any action they considered relevant. In addition, where data in the reports was missing or clearly in error then a quarterly report was sent to each LA identifying this and so the data were 'cleaned up' each quarter. A quarterly Newsletter was also produced to promote interesting and good practice and update projects and LAs on issues concerning the evaluation.
The data for each project, and each local authority area, were gathered using widely available, standard database software so LAs could easily analyse their own data in ways that suited them and their decision making processes. Quarterly summary reports of monitoring data were also produced and put onto the Scottish Executive and Employment Research Institute websites for ease of access.
Should WFF be continued, or local authorities wish to continue using the database in the future then consideration should be given to developing it in a web-based format. In addition, the amount of data collected, for on-going evaluation and monitoring, required from the LAs could be reduced as many of the key issues will have been covered under the Phases 1 and 2 evaluations and long-term data requirements should be lower. However, more limited key monitoring and evaluation longitudinal data should continue to be collected.