PSB 30
Dulliau gweithredu lleol ar gyfer lleihau
tlodi:
Deddf Llesiant Cenedlaethau’r Dyfodol a byrddau
gwasanaethau cyhoeddus
Local Approaches to poverty reduction:
The Well-Being of Future Generations Act and public
service boards
Ymateb gan: Cefnogi Trydydd Sector Cymru
Response fromThird Sector Support Wales
Background to inquiry
- Representatives from Third Sector Support Wales
(TSSW) welcome the opportunity to provide evidence to the
Equality, Local Government and Communities Committee
on the structure and effectiveness of Public Services
Boards.
- Third Sector Support Wales
is a network of support organisations for the whole
of the third sector in Wales. It consists of the 19 local and
regional support bodies across Wales, the County Voluntary Councils
(CVCs) and the national support body, Wales Council for Voluntary
Action (WCVA).
-
Our shared goal is to enable the third sector and
volunteers across Wales to contribute fully to individual and
community wellbeing, now and for the future. We work with
citizens, volunteers and third sector groups to identify and
address what matters to them. Our core activities to strengthen the
third sector and volunteering focus on:
○
Enabling and supporting
○
Being a catalyst
○
Engaging and influencing
-
We have four pillars of activity that make up our
universal offer, these are:
○
Volunteering
○
Good governance
○
Sustainable funding
○
Strategic engagement and influencing
- The Chief Officers of the 19 CVCs are third sector
members of each PSB across Wales.
Inquiry Terms of Reference
- The response from TSSW will be structured around the
Terms of Reference for the inquiry, which are to:
○
gain an understanding of the structure and functions
of the PSBs;
○
explore the effectiveness of PSBs, resourcing and
capacity; and
○
gather evidence of issues or barriers that may impact
on effective working, and examples of good practice and
innovation.
-
For reference, please see historic comments on PSBs
submitted by WCVA in previous Welsh Government
consultations:
○
Local approaches to poverty reduction: The Wellbeing
of Future Generations Act and Public Services
Boards, December 2017
○
Public services fit for the
future, September 2017
○
Reforming local government: Resilient and
renewed, April 2017
Gain an understanding of the structure and functions
of the Public Services Boards (PSBs)
Third sector involvement in PSB structures
- CVC Chief Officers and/or Chairs are involved in each
Public Services Board (PSB) as an invited member on behalf of the
third sector, and an important partner in engaging the third sector
in understanding the PSB’s work programmes and local service
delivery by disseminating information through local third sector
networks and facilitating opportunities for the sector to be
involved in the work of the PSBs.
- CVCs have been engaged in the development of
well-being assessments and well-being plans and, as members of the
PSB sub-groups and Public Engagement Networks, are working to
involve local people and communities in how we develop a
relationship and ongoing conversation that addresses what matters.
This kind of approach requires a step change in the behaviours and
skills sets of all PSB members.
- CVCs and WCVA members report that the work of PSBs
feels very distant from the reality of the day to day work of third
sector organisations and it can be difficult to make the strategic
agenda relevant. Large third sector national organisations wish to
support the implementation of the Act but are not clear how to
contribute to local implementation. It is also difficult for the
smaller third sector organisations to recognise how they contribute
to the PSB work.
-
For PSBs to be considered relevant, local people and
communities need to feel involved in the process and a connection
to the language that is used to express the issues citizens and
communities face. Public Services Boards (PSBs) must work to the
guidance in the National Principles for Public Engagement in
Wales and ensure that their membership includes those with
experience of working in communities at grassroots level in order
to include first-hand intelligence about the issues people face. To
do so, there should be increased involvement of the third sector
and/or community representatives at PSB level, which might be
achieved through an action plan arrangement between voluntary and
community organisations, the third sector and PSBs.
-
The third sector has the potential for three levels
of involvement with PSBs:
·
Engagement with those who are seldom heard. The
sector can be an avenue both for the dissemination and collection
of information and as part of (not the) route for
involvement.
·
The third sector has a wealth of qualitative data
that can identify current unmet need and be fed into the future
trends work and assessments. This is not always
recognised.
·
Third sector as the deliverer of solutions in terms
of meeting need and providing services differently.
Culture
- The culture of PSBs feels like a local authority
owned agenda, notably in areas where the number of local authority
representatives outweighs that of other organisations. The
perception of the current balance of power is reflective of the
status quo, a ‘two-tier’ system with a clear onus on
the four statutory partners versus the ‘other’ members;
resulting in weak collective ownership of the work. This has been
addressed in some areas e.g. in Pembrokeshire, the CVC Chief
Officer is currently the vice-chair of the PSB.
14. The communication from the Future Generations
Commissioner challenging PSBs to collaborate on certain key areas
of work came too late in the development of the Wellbeing Plans.
PSBs operating in one unitary authority do not currently have any
governance arrangements established for cross boundary working. In
addition, barriers to cross-boundary working may be impeded in some
areas by differing party politics that are not conducive to working
together. The recent Commissioner analysis of individual plans is
welcome, but very challenging and would have had more value in
shaping plans if available at an earlier stage. Some
recommendations are substantially different from the pathway that
had been established in the development of action plans
- The commitment to working with the third sector is
well understood at policy level. However, in practice the language
and bureaucratic processes inhibit the sector from engaging more
deeply. In addition, the approach to developing well-being plans by
comparing corporate plans with emerging priorities, does not work
from a third sector point of view as we are not a corporate entity,
making it difficult to identify opportunities for
collaboration.
Collaboration
- At present there is a risk of new PSB partnership
sub-groups duplicating work of existing partnerships rather than
allocating work streams to existing structures. PSB Well-being
Plans need to be embedded in normal working practices and deliver
outcomes. PSB plans often have not been embedded into PSB
partners’ own operational plans due to a timing disjoint - it
may mean that strategic plans may not be inclusive until after year
one of the PSB Action Plan has been reviewed. It is important that
all Partnerships have a thread back to the PSB and Wellbeing Plans.
With limited resources Partnerships that don’t have a pathway
could be deemed to have no real value. The interlinking of delivery
Partnerships to the Strategic PSB will be crucial in determining
the use of limited resources.
17. A key role for TSSW partners is to work through PSBs
to ensure that there is an understanding of existing community
assets at grass roots level, whose role should be acknowledged
within each plan and considered in terms of how services are
co-produced locally.
Synergy between WBFGA and SSWBA
- There are synergies between the two Acts and their
implementation on the ground that could be strengthened. CVC Chief
Officers are involved in both the PSBs and Regional Partnership
Boards (RPBs), which enables links between the local and regional
agendas to be identified and scope understood for collaboration to
ensure local and regional needs are met.
- The governance structures for PSBs and RPBs also
differ in terms of their arrangements for third sector membership
and citizen involvement:
·
PSBs have one or more local third sector
member(s) eg in Pembrokeshire PAVS and PLANED are
members;
·
RPBs have two third sector members (one local, one
national organisation); service user and citizen
members.
- Whilst the specific remits of PSBs and RPBs differ,
there is clear synergy between partners who are involved in
implementation on the ground. A structured link between the PSB and
RPB governance arrangements could provide scope for a more joined
up approach, more efficient use and pooling of budgets,
etc.
- The North Wales RPB recently received a presentation
on Integrated Service Boards (of which there are three in the
region), indicating a third governance structure that could
potentially link with the RPBs and PSBs.
Explore the effectiveness of PSBs, resourcing and
capacity
Capacity
- CVCs observe that resources are available to support
the delivery of social care and the work of the RPBs, e.g. the
Integrated Care Fund, Delivering Transformation Grant; Dementia
Fund; Transformation Fund, etc with significant capital being made
available. In contrast, resources for the implementation of the
work of PSBs appear to be minimal.
23. There is no dedicated resource for PSBs. Capacity is
an issue. It remains to be seen whether or not PSBs simply become
another ‘solution looking for a problem’ and therefore
an additional layer of bureaucracy. This was perceived to be the
case with LSBs. If so, PSBs will be experienced as capacity and
resource consumers, rather than capacity and resource
creators.
24. Whilst genuine attempts have been made to enable
people to ‘have their say’, this falls very short of
co-production. Authentic community development cannot be incidental
or accidental. It needs a deliberate approach, with dedicated
resource. A community development fund (akin to ICF) for PSBs would
be very welcome. Crucially, this should be a PSB fund, not
something in the control of the local authority, and used
exclusively for change and new work, not to maintain same
old.
25. To bring about the transformative change that is
envisioned by the Acts, we see a clear need for development support
at strategic level for all PSB (and RPB) members in
collaboration in order to bring about a set of changed
relationships and behaviours (how to work effectively together);
and for practitioners and front line staff on how to effectively
implement the principle of involvement. This is
new to many professionals and citizens and needs support and
resource.
26. PSBs are encouraged to consider taking
a similar approach to the Valleys Taskforce, by listening to the
voices of local people and reflecting concerns in language that is
readily understood. A ‘you said / we listened / together we
did’ co-productive approach provides a benchmark against
which public bodies can be accountable for their actions to improve
the well-being of citizens. One survey respondent to
WCVA’s survey said simply: ‘ask them, listen to the
answers and act on the outcome’. This was a core
principle at the outset of Communities First, but it has become
lost along the way.
Resources for third sector involvement
- CVC Chief Officers consider their membership of PSBs
to be of strategic importance to the third sector and therefore
dedicate time accordingly. However, concerns are expressed at
the apparent level of expectation of third sector members, which
often falls to CVCs, to become involved in sub groups and project
specific work. CVC Chief Officers are also involved in numerous
regional partnerships (RPBs, health collaboratives, economic
regeneration partnerships, RSPs, etc), none of which have displaced
local (or locality) working arrangements.
- This level of involvement is resource intensive for
CVCs, and it is difficult for members of other third sector
organisations to justify their involvement in workstreams when the
work of the PSBs feels so distant from reality. One possible
alternative is for sub roles to be allocated to other organisations
who may have specific knowledge. They would, however, require
resource to engage and would need to be hooked in with local CVC
networks.
- Whilst we welcome the positive legislative context
which actively promotes third sector involvement in the
implementation of the Act, the expectation and ‘ask’ of
the third sector members of PSBs (and RPBs) needs to be articulated
more clearly, consistently applied and with proper consideration of
the resource implications for CVCs and the wider third sector to
engage with the plethora of meetings associated with PSBs and RPBs.
To demonstrate the level of demand for CVC involvement in local and
regional partnership arrangements, during 2017/18 NPTCVS facilitated the involvement
of the sector in 74 strategic planning/working groups and its
Director sat on over 50 key strategic external bodies; CVSC
participated in approximately 60+ boards/
forums/partnerships/panels and GVS was represented on almost 60
strategic partnerships and joint working groups.
- At national level, Welsh Government has funded a part
time post at WCVA for six months (Delivering Transformation Grant
Co-ordinator) to support and promote the third sector’s
involvement in the delivery of the Social Services and Well-being
Act (Wales), including pro-active co-ordination of the third sector
RPB reps to strengthen their links with third sector networks. The
disconnect on the ground between the two Acts has been highlighted
as an issue by a range of stakeholders.
Delivery
- The function of PSBs, to date, has focused on the
well-being assessments leading to the establishing of the
well-being plans. These are now in place and, for example in Powys,
has 12, very high-level priorities. In many cases, the
implications for operational delivery are not yet clear and nor is
it understood how plans will be translated into action that builds
on existing community assets. However, in Ceredigion, for example,
delivery mechanisms are clear with project groups for each
workstream established and involving third sector and Cabinet
Member involvement.
- The intelligence held by front line staff within both
the public and third sectors is an under-utilised resource,
particularly with third sector organistaions, because often data
collection methods are not sufficiently robust and protocols for
sharing data may not be sufficiently developed. For example, one
respondent to the survey undertaken by WCVA told us that:
‘…we don’t even know what PSBs do, who they
are or how we can better engage with them. They should be
interacting with the organisations on the front line and giving us
an opportunity to feed back what we see and the struggles facing
people.’ This should not be considered solely as a
task for third sector members of the PSB to address, but rather the
PSB acting as one to engage with a spectrum of service providers,
to find ways of enabling third sector organisations to share
evidence and data in a way that is useful and useable for local
planning purposes. If this breadth and depth of engagement is
envisaged, it must be matched with an investment in capacity and
skills to achieve a step change.
Gather evidence of issues or barriers that may impact
on effective working, and examples of good practice and
innovation
- There is a risk that PSBs only acknowledge and report
on the funded/contracted activity and ignore the considerable
voluntary/community activity that will feed into the targeted
outcomes in the Plan, under-valuing the role of the third
sector’s contribution to well-being. Unfunded
preventative/community activity is vital for PSB plans to have an
impact, yet this is not recognised.
- Engaging fully and positively with elected members
(County Councillors) is a problem – many see the PSB as an
unelected quango, rather than a key partner in the delivery of
well-being objectives for their constituents. This situation
is not helped by the legislation, which puts the elected members in
the role of scrutineers, not partners. Scrutiny would be better
undertaken by a multi-agency panel (reflecting the membership of
the PSB) and/or by citizen scrutineers. In Ceredigion,
Cabinet representatives are sitting on each project group in an
attempt to support positive links between elected members and key
stakeholders.
- The involvement of town and community councils on
PSBs is also an issue. Town and community councils have an
important role to play in developing resourceful communities, but
in many cases they are reluctant partners. One Voice Wales
has a seat on the Ceredigion PSB, but have found it difficult to
engage. They have also been invited to put forward a representative
to the Pembrokeshire PSB. Engagement with town and community
councils will be essential in the implementation phase,
particularly around those priorities associated with developing
community resourcefulness.
- The legislation makes it clear that PSBs should work
in a citizen-centred way, involving people in the co-design and
delivery of Well-being Plans. Whilst this process was not
perfect (short timescales made it impossible to do things right),
every effort was made to engage with as many people as possible,
and this helped inform the development of the Well-being
Plans. Pembrokeshire PSB took the decision not to target
specific user groups within the Well-being Plan, taking the view
that the Plan seeks to improve community well-being.
Nevertheless, pressure has been brought to bear individuals/groups
who want to see their particular area of interest written into the
plan – for example, Older Persons’ Commissioner (older
people); Public Health Wales (first 1000 days); Arts Council for
Wales, etc. Welsh Government and other national agencies must
resist the temptation to micro-manage PSBs – this is what
adopting a “citizen centred approach” means in
practice.
- The complex maze of corporate planning structures and
timetables to create shared plans is also perceived to be a risk to
implementation. A common measurement matrix of outcomes should be
produced and all plans, whether within a public sector body or
third sector, can be utilized to feed into local, regional and
national monitoring. Failure to establish common monitoring will
result in perceived gaps in some service areas when they do not
exist but are measured differently.
-
CVCs have been engaged in the development of
population assessments and well-being plans and, as members of the
PSB Public Engagement Networks, are working to involve local people
and communities in how we develop a relationship and ongoing
conversation that addresses what matters.
39. A number of priorities in PSB plans can potentially
only be delivered regionally if Welsh Government plans outlined in
the Green Paper for greater regional service delivery are
implemented. There is little synergy at the moment between local
and regional planning of services.
- CVCs have undertaken a range of engagement work with
local organisations, which could be shared more widely as good
practice, e.g:
●
Interlink RCT, BAVO and VAMT have established a local
network/reference group specifically on well-being/WBFGA/PSB work
to inform the CVC’s role as third sector member of the PSB
and to act as a point of contact for the PSB with the
sector;
●
NPT CVS has supported the development of a Citizen
Engagement Scheme which has been formally adopted by the
PSB;
●
PAVS is a member of Pembrokeshire Co-production
Network that brings together participation and engagement
practitioners from across the PSB partnership. The intention is to
establish the Network as the primary mechanism for PSB engagement
with citizens and communities across Pembrokeshire. PAVS’
Chief Officer is leading on this work in her role as Vice Chair of
the PSB but progress is slow due to lack of resources;
●
Some third sector organisations have welcomed the
well-being plans and checklists as a useful tool for helping
organisations to frame what they are aiming to achieve in the
context of local well-being;
●
NPT CVS leads on the transport sub-group which is
exploring alternative transport solutions for communities in the
area. This is a multi-agency group involving Third Sector as well
as statutory partners and has recently secured funding to undertake
a feasibility study (NPT CVS);
●
Participation in work around digital inclusion, which
has included a third sector digital survey that was developed by
NPT CVS and the sector, supported by the Council.
●
Mantell Gwynedd were successful in obtaining 480k of
funding from the Lottery’s Third Sector Skills fund which
will enable North Wales CVCs to upskill staff so they are able to
undertake the work of measuring social value. It is by
understanding the social value of activities that we can work
towards effectively managing the creation of well-being and this is
essential to making the intentions of the Act a reality. The main
focus of the project is to measure the value of activities and how
they relate to the national well-being goals.
41. Community Voice was a strategic grants programme
managed and funded by the Big Lottery Fund in Wales that came to an
end in March 2018. The programme aims to build the capacity of
citizens to engage in planning and running services and projects
that respond to their communities’ needs and advance
community benefit. The programme provided £12 million to CVCs
through eleven Community Voice grants. CVCs were each responsible
for their portfolio of 5-10 individual projects to deliver locally
co-produced initiatives, facilitating more effective engagement
with key public sector organisations, helping people to influence
decisions about services they receive and developing local services
that better meet their needs. Big Lottery Fund have
undertaken an evaluation of the programme, from which lessons could
be shared. Without resources from this programme, the depth and
breadth of citizen involvement achieved by each CVC is
minimal.
42. Interlink (RCT) has a member of staff seconded to
work at the Future Generation’s Commissioner’s office
for approximately one day per week to support
involvement and help link to SenseMaker initiatives. It is a
connection to a member of staff who is an involvement
‘practitioner’ and provides a mechanism for feedback
about what is happening on the ground in relation to strategic
plans and programmes.
-
PAVS leads on the Pride in Pembrokeshire award scheme
on behalf of the PSB, which recognises volunteer-led activity in
local communities that improves individual and community
well-being. Groups receive a certificate, a cheque for £200
and editorial/photograph in the Western Telegraph, giving them a
platform to promote their work to the general public, potential
funders and volunteers. This is a good mechanism for sharing good
practice as well as publicising the PSB.
- We recommend that PSBs seek to engage more
effectively with each other in order to share experiences and good
practice and offer a more effective, coherent approach to their
work – recognising, of course, that different regions have
different needs and so each PSB will still need to work in its own
way.