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Partnership and prevention in an era of reform: evidence from Scotland
- 1. Partnership and Prevention in an Era of Reform: Evidence from Scotland Part I Nick Fyfe (SIPR) (with Nick Bland (What Works Scotland) & Amy Goulding (SIPR)
- 2. Policy Context • Police Scotland and Scottish Fire and Rescue Service established 1 April 2013 • Strategic Aims of Reform • Reduce duplication but maintain local service delivery; • Improve local access to national capacity and specialist expertise; • Strengthen connections with local communities;
- 3. Policy Context • The Christie Commission (2011) on the Future of Public Services in Scotland: • Tackling ‘failure demand’ through prevention • Focus on working collaboratively and in partnership
- 4. The Partnership Landscape • A ‘collaborative ethos’ and the impact of reform; • The drivers of partnership: • Reducing budgets, increasing demand • Community Empowerment Act 2017 and Local Outcome Improvement Plans focused on ‘wicked issues’ and ‘collaborative advantage’
- 5. Barriers to and facilitators of Partnership Working • Complex institutional landscapes; • Data and information sharing; • Leadership, buillding trust and ‘relational capital’.
- 6. Unpacking Prevention Primary – preventing a threat/risk before it occurs; Secondary – preventing a threat/risk from reoccurring; Tertiary – softening the impact of an ongoing threat/risk
- 7. Vignette 1 Secondary/Tertiary Prevention: Community Safety Hub in an Urban Area Why was this initiative needed? Brought together a few months before reform. Identified need for the different agencies to working more collaboratively What does it involve? Co-location, multi-agency approach, weekly meetings (MATAC), daily information sharing, problem solving, prevention work Who is involved? Police, fire, anti-social behaviour team, housing, council, Victim Support What do we know about the impact? Should be the ‘norm’, development of relationships, building trust
- 8. Vignette 2 Primary Prevention: Road Safety in a Rural Area Why was this initiative needed? Primary prevention, early intervention approach for pre-driver young people to address serious injury and deaths amongst young in rural areas What does it involve? 1 day training for 14-17 year olds were they are provided with road safety advice and an opportunity to drive a car Who is involved? Police, fire, ambulance service and private partners What do we know about the impact? Being independently evaluated. Adapted approach from other areas
Hinweis der Redaktion
- Diverse range of settings for P-W Research highlights the range and diversity of settings in which partnership working in police and fire takes place. Some examples- ongoing statutory partnerships (e.g. Community Planning Partnerships, Local Resilience Partnerships) to more recent locally designed arrangements (e.g. ’hubs’ for community safety, vulnerability), time-limited local joint initiatives (road safety), day-to-day working together (e.g. local community policing). A rich and varied picture. And term ‘partnership working’ covers a broad range of different ways of working together- communication, cooperation between partners, coordination of activity, to integrated joint-approaches towards shared outcomes. On wide variety of issues – for example, community planning, mental health, safety in the home, road safety, emergency planning and response Organisational, cultural and personal aspects to P-W Organisational- Examples of organisational arrangements seen to support P-W: co-location and formal secondments (in and out). Common perception of greater organisational support, encouragement and empowerment for P-W in police and fire. The importance of leadership – within services to encourage P-W; and in partnerships ‘collaborative leadership’ Examples of improvements to data and information sharing Mixed picture on organisational commitment of time and resource to P-W, some settings more positive than others Cultural Sense of continuing development of P-W culture (a collaborative ethos) both within police and fire services, but also across partners. Evidence of local cultures of P-W across partners to which local police and fire contributed, supported. Personal Interviewees emphasised the personal/individual side of P-W. The importance of building personal trust, respect, credibility, mutual understanding of respective roles and organisations, getting over technical language/jargon to shared understanding (this has been termed in P-W literature, ’relational capital’). Building wider and deeper networks with partners on which to draw- this is a resource. Some interviewees pointed to partnership working requiring particular skills, abilities (similar findings in P-W literature about ‘boundary spanners’). Some also pointed to the importance of personality traits and characteristics. Changes in P-W Interviewees spoke to a range of influences on partnership working, some to do with police and fire reform, some to do with other public service reforms (e.g. in community planning through Community Empowerment Act). These influences were not all experienced similarly in the different case-study areas and partnership settings. Some examples: General sense that P-W more widely recognised and accepted as expected, ‘normalised’, part of ‘business as usual’- sense of a culture change – in police and fire. P-W less of a ‘specialism’ and more regarded as a mainstream activity. P-W for police, fire and partners seen as ‘maturing’, frequently linked to emphasis in Christie report and Community Empowerment Act, also to the impact of reduced budgets pushing need for P-W- using collective resources of partners. Recognition of ‘collaborative advantage’ (term in P-W literature) But there were challenges to maintain/sustain P-W in settings where there are fewer staff having to cope with wider remits since reform. Interviewees highlighted importance of consistency in local relationships, allowing quality personal relationships built up over time. So where experience of frequent rotation, churn, of key police and fire staff in past few years that impacted negatively on P-W. The impact of national policy decisions locally in police and fire identified as impacting on quality of local relationships with partners. Work needed to rebuild these when this happens. For example, decisions to reduce contribution (e.g. fire inspection of houses of multiple occupancy). Also national could constrain local activity (e.g. limits on local admin rights for social media for police) Some police/fire interviewees pointed to positive influence of reform on consistency/coordination of approaches in specific partnership settings. National guidance and support welcomed. – Prevention and Protection in fire for example, national meetings of P&P managers. Also positive reflections on ability/opportunity to share and learn from other local areas. But sometimes that is experienced by partners as cutting across local activity. In some P-W settings, reform had big impact (e.g. negatively on community policing in early part, but much improved in last 9 mths) but in others apparently very little at all (e.g. local resilience partnerships)
- How do we define innovation? Examples of ‘sites of innovation’ e.g. fire service broadening its approach to safety in the home. b. Conditions that support innovation Importance of supportive, empowering leadership. Acceptance of risk. Budget cuts driving creativity P-W a driver, enabler for innovation c. How innovation is spread, communicated Examples of good practice sharing between local areas, with apparently more willingness to share what is working well and what is not. There seems to be awareness of what is happening in other areas and examples of ideas for prevention being shared e.g. mental health, road safety and co-location. d. Local adaptation Example of in area D doing own study (local needs assessment) of mental health crisis demand. Didn’t just apply another area approach e. innovation for incremental improvement or transformation? We are considering to what degree are the innovations we see examples of real organisational transformation, or more incremental improvement? (not reached conclusion on this)
- Prevention includes a wide range of activities aimed at reducing risk and harm The Christie Commission outlines the need for a move away from reactive approaches dealing with immediate problems to longer term initiatives Policing 2026 and SFRS Framework for Scotland 2016 demonstrate a commitment to prevention driven approaches at a strategic level To attempt to understand prevention in practice we used a framework from the Institute for Work and Health: Primary prevention aims to prevent a threat/risk before it occurs through, for example education. Secondary prevention aims to reduce the impact of a threat that has already occurred by introducing initiatives to prevent the threat/risk reoccurring. Tertiary prevention aims to soften the impact of an ongoing threat/risk through for example rehabilitation initiatives. We found that most of the work conducted came into the secondary prevention category. As it was categorised as reacting to an identified issue such as young people engaging in anti-social behaviour and was a short term approach to the issue e.g delivering programmes but not providing any follow up with the participants. There were examples of primary prevention such as road safety initiatives which focused on children and young people before driving age – however, the majority were secondary examples and highlight that despite Christie’s recommendation to tackle the root causes of inequality, much of their prevention work still appears to be reactionary and focused on short-term activities Impact of reform – As Nick has already highlighted reform provides a backdrop for partnership and prevention but was not the only factor and what we found is that for both services is was identified that they are going in the right direction now since reform. SFRS felt that prevention activities were more coordinated and that resources could be shared throughout the country. They have also moved towards a risk based approach leading to more work in a home based environment. The national strategies are also felt to have provided greater clarity about their role and increased accountability For Police Scotland, it was generally felt that there had been a dip in prevention activities immediately after reform due to the practical changes being made. However, it is believed that they are now focusing more on prevention and recognise the importance of collaborative working. However, for both services reform was not the only factor impacting on the prevention agenda. The Christie principles, new Justice vision and need for more joined up working due to funding cuts across all organisations were felt to also have impacted on prevention. I will now talk you through vignettes. These include 2 examples of partnership and prevention work and are based on focus groups which were conducted in 2 of the case study areas.
- Why was this initiative needed? The community safety hub was formed just a few months before reform, towards the end of 2012. Before this time there would be regular meetings between partners but no co-location. It was believed there was a need for the partners to work more collaboratively. What does it involve? They have a model of co-location between the police, council and anti-social behaviour teams. They have weekly MATAC meetings in which they share information on specific incidents and they use this as an opportunity to draw on resources, problem solve and co-ordinate required responses. But, as well as the weekly meetings they have daily, informal data sharing arrangements. It is believed to open up other opportunities for different types of actions and move away from punitive responses to more coordinated approaches, prevention work Who are involved? Police, fire, anti-social behaviour teams, housing, council, Victim Support What do we know about the impact? Those involved believe their approach should not be viewed as innovative, it should be norm as it is ‘sensible’ . Not having a shared IT system creates issues, but the benefit of co-locating is that they can speak to each other and share information on a daily basis. What is highlighted is the development of relationships between the partners, in which the hub provides an informal environment to break down barriers between the agencies, understand each others roles and limitations, build trust and develop solutions together. They also feel supported by their respective agencies to be working in partnership and feel empowered to work in this way.
- Why was this initiative needed? The focus of this initiative is a primary prevention, early intervention approach to pre-driver age young people. The decision to focus on this group was a response to concerns by the partners to deaths and serious injury rates amongst 17-25 years particularly in rural areas. As such, this initiative was intended to reach young people before they became drivers and introduce good attitudes towards driving and provide a long-term solution through an early intervention approach. What does this initiative involve? This initiative was a one day training course for pre-driver young people aged between 14-17 years who were taken by their schools to an airfield, where they were provided with an opportunity to drive a car. During the driving experience they had two coaches who were representatives from two emergency services (police, fire or ambulance). During the coaching session they were shown how to operate the car and provided with road safety advice. This approach was viewed as innovative and different from other road safety initiatives due to the young people being given the opportunity to drive. This approach is seen as moving away from the more traditional methods such as PowerPoint presentations and showing films, and instead provides the young people with hands on driving experience. Who are involved? The police, fire and ambulance service worked in partnership to deliver this initiative, with some funding from the council and Scottish Government. It however, could not have taken place without private investment from local business owners who provided the cars and airfield for the training to take place on. These business owners had concerns about the road safety amongst young people and were keen to become involved. Impact This initiative is in the process of being independently evaluated. It is not clear what the long-term impact will be of this one day input on the future young drivers. However, the partners involved in the initiative looked at similar approaches being used outside of Scotland including teaching young people under age 17 to drive and found that the likelihood of them being involved in accidents in their first year of driving reduced significantly. Interest has been shown from other areas and they are in the process of sharing their learning. The approach has also been nominated for national awards for innovation and partnership working and has received national media coverage. The sustainability for the initiative is based on receiving funding through Transport Scotland at the Scottish Government.