Tackling child poverty - place-based, system change initiatives: learnings

3. The implementation of place-based, system change initiatives

Key messages

The findings to date show that for those initiatives at the implementation phase, there are encouraging and positive signs that they are laying the groundwork for longer term system change. This includes greater partnership working with a shared sense of purpose; regular and clear communication and strengthened relationships; and recognising and building on the knowledge and experiences of local communities.

Effective partnership working was seen to be crucial in driving forward system change. From increased partnership working arose a greater awareness among partners of the range of key stakeholders and other service/delivery partners locally, which minimised duplication of effort. Further, a shared and common sense of purpose, and building clear lines of communication, were seen to be crucial in aligning interests across partners in order to enable longer term and sustainable change. Taking time to develop these strong partnerships and relations from the outset was seen to be essential in enabling longer term, sustainable delivery of system change initiatives.

Effective place-based working, drawing upon local knowledge and experience in order to deliver the right services and support for local areas, was also viewed as critical, because this allowed partners to recognise the strength and uniqueness of local areas – and then to use this to provide support that meets the needs of local families in their local context.

The key challenges that were identified to successfully implementing initiatives focused on the long-term nature of implementing system change. This meant it took time to see progress and embed structural change and this did not always align with funding timeframes. Another challenge concerned workforce investment, particularly relating to the recruitment and retention of staff, often due to the fixed-term nature of appointments as a result of the temporary nature of funding. A further challenge was the difficult socio-economic context in which initiatives were delivering their services (e.g. the aftermath of the COVID-19 pandemic and the ongoing cost of living crisis). This context is likely to be increasing the levels of need felt by people using these services.

For those initiatives at the implementation phase, many are at a very early stage. However, it is clear from the outputs to date that there are encouraging and positive signs of initiatives laying the groundwork for longer-term system change. This chapter of the report will explore the successes, alongside the barriers and challenges of place-based, system change initiatives to date. Further, it will consider early findings on effective methods in engaging with people using services, alongside the challenges of doing so.

Successes and enablers to implementing system change

This first section provides an overview of the enablers to implementing system change and what aspects have been found to be successful and good practice. Three themes are considered:

• the multiple benefits of partnership working
• setting the groundwork for long lasting cultural change
• drawing on local experience and knowledge.

The multiple benefits of partnership working

From the available evidence, it is clear that partners and stakeholders found multiple benefits in partnership working and this was seen to be key in driving forward system change. Of note, across the early implementation findings from evaluations, it is suggested that increased levels of awareness of other local partners was a key outcome of partnership working, while a shared sense of purpose and regular and clear communication were frequently reported as key to embedding relationships.

“Much of the systems change described by partners and stakeholders related to a growing awareness of other organisations, and the people working within them. Many partners and stakeholders felt that it was relationships between people that was contributing to systems change.” Pathfinders early implementation report

In particular, the Pathfinders early implementation report highlights the levels of job satisfaction that arose from ‘proper partnership working’ and helping to improve the lives of families living in the local area. It is clear across other initiatives, such as NOLB, that supportive, motivated and empathetic staff were also key to delivering a positive service for individuals/families.

“Service users reported high levels of satisfaction with the support they received due to the holistic, tailored and person-centred nature of this and how open, supportive and encouraging the staff delivering the services were. Most service users agreed that the support was delivered by knowledgeable staff, tailored to their needs and recognised their existing experience and current situation.” No One Left Behind implementation report

“I think now, with the introduction of No One Left Behind, we work a lot more closely with each other…it's about the individual and not about, 'Well, that's your programme and we need to give you 12 people to fill it whether they're suitable or not.'...it's, 'What does this individual need?' And we're actually having those discussions…” Quote from Local Authority Stakeholder, No One Left Behind implementation report

Having a strong and dedicated lead for the initiative was also identified as an essential enabler, in order to ensure coordination and successful implementation and to sustain the partnership working required.

“Many of the [Children’s Services Planning Partnerships] CSPP strategic leads highlighted the importance of the role of a dedicated lead for driving forward the WFWF and leading on coordination across CSPP partners and the third sector. This was both in terms of having the capacity to dedicate to the design and implementation of WFWF activity and to keep CSPP and third sector partners engaged.” Whole Family Wellbeing Funding interim report

For many of the initiatives, partnership working is not new but about further embedding existing practices. For example, for some of the local authorities, the NOLB employability service did not represent a new or innovative approach, but was more a formalisation of existing practices and structures. However, the implementation evaluation of NOLB highlights how there have been multiple benefits from this enhancement and formalisation.

“It [NOLB] was said to have facilitated better partnership working between employability stakeholders at the local level, including bringing greater focus and purpose to existing partnership structures, and most agreed that it had contributed to further development and enhancement of services.” No One Left Behind implementation report

There is little evidence to date across the available reports that explores the role of Scottish Government as a partner in place-based, system change initiatives. This is discussed further in Chapter Four of the report.

Setting the groundwork for long lasting cultural change

For those initiatives that had assessed progress on new and innovative ways of working, there was a clear sense that there were early signs of improved practice and buy in from stakeholders across the system who could see the benefits from changes in previous ways of working. For example, the Pathfinders early implementation report noted that:

“…[partners and stakeholders] felt that working more closely with people from other organisations as colleagues and partners had led to new ways of working that over time, with support, could contribute to broader cultural changes within workplaces and organisations. Some partners and stakeholders felt that now that they could see the benefits of working in this partnership-based way to share resources and create new access routes for people, they could not see themselves returning to previous ways of working.” Pathfinders early implementation report

Findings from the Pathfinders also suggest that in overcoming and finding solutions to challenges faced by partners and stakeholders in design and early implementation, relationships and partnership working were strengthened. In particular was how taking the time to build and develop effective relationships was a fundamental initial step in ensuring effective system change.

“Developing those relationships [between services] was a core component of arriving at shared aims and achieving a shared vision, and so it is suggested that if future Pathfinders are considered, time should be allocated for the formation of effective relationships and partnerships. Where this time is available, it should be viewed as being part of creating the right conditions and foundations for change...” Pathfinders early implementation report

Drawing on local experience and knowledge

A final enabler of effective system change implementation appears to be related to the place-based and person-centred nature of initiatives, in particular, recognising and building on the assets (the knowledge and experiences) of local communities. This involved providers and partners recognising the strengths and uniqueness of local areas – and using this to their advantage in order to provide support that met the needs of local families in their local context.

One example of this is the SIP, which has developed a distinctive model, providing new ways to involve people with lived experience in the policymaking process so that different forms of experience can inform policymaking and practice (SIP learning programme report).

There is also evidence across other initiatives that local partners saw value in using local knowledge, data and experience to inform their approaches:

“…many CSPPs have focussed on expanding existing successful activities which was felt to be an important factor in them being able to implement at pace. Building on existing services meant that CSPPs relied on an existing body of evidence and experience around what works for whom in their localities.” Whole Family Wellbeing Funding interim report

“…most partners and stakeholders were of the view that the most important evidence to use to inform Pathfinder development was context-specific, and informed by local data, rather than empirical or academic evidence on what works more generally to address child poverty.

An overarching finding is that Pathfinders need to be shaped around principles of person-centred support, while having the flexibility to be delivered in ways that are appropriate to and reflect and respond to the local context.” Pathfinders early implementation report

Further, there is evidence of the successful application of local data and knowledge across WFWF and the Pathfinders.

The WFWF interim report also shows the importance of tailored approaches to engagement. While all case study CSPP’s receiving WFWF funding undertook consultation with children, young people and families, the scale and extent of this varied. Those CSPP’s that undertook a tailored approach to engagement (rather than using existing service feedback forms or experience surveys), such as in-person engagement events and workshops with families, received greater insights which enabled them to feed this into various aspects of their WFWF design and planning, thus ensuring a service better suited to the needs of families.

Meanwhile, the Pathfinders early implementation report highlights the value to be found in using data to target families. Of particular note, was using council tax reduction data, held at the local authority level, in order to identify families who may have greatest need or may benefit from targeted offer of support.

Barriers and challenges to implementing system change

This section provides an overview of the challenges and barriers to implementing system change. Five themes are considered:

• the timeframe for implementing and seeing the benefits of system change;
• embedding structural change;.
• sustainability and funding;
• challenges in recruitment and retention of staff;
• the socio-economic context

The timeframe for implementing and seeing the benefits of system change

A significant challenge and barrier to implementing system change initiatives was the issue of how long it can take to see any significant change. Across the initiatives where findings are available, there is a consensus that system change is necessarily a long-term outcome.

“Most partners and stakeholders suggested that while some change had happened, whole systems change at the scale required would take considerable time and should be viewed as a long-term project.” Pathfinders early implementation report

In particular, while there were some clear signs of progress, with enhanced ways of working and strengthening partnerships and person-centred design and delivery, partners and stakeholders from across the Pathfinders felt full system change would take a number of years to achieve and to evidence.

“Some [partners and stakeholders] considered that change on the scale required would take 5 to 7 years to evidence. While monitoring the process of change, and early indicators of success will be important going forward, a suggested recommendation would be that consideration is given to the amount of time that it may take to fully embed systems change and tackle child poverty.” Pathfinders early implementation report

The reasons for system change taking time to implement and evidence is due to the complexity of the system and multiple possible pathways to achieve change., This in turn requires long-term investment and commitment from multiple sectors: welfare, health, social services, financial advice, and the third sector, among others.

Embedding structural change

A considerable challenge across system change initiatives was the shift from design to implementation, that is, how theoretical and long term aims and objectives can be fully realised in practice. For example, the evaluability assessment for the Pathfinders reported that there was still work to be completed to ensure that system change is a core component of the delivery. In particular, ‘the activities, processes and structures needed to facilitate ‘system change’ had not yet been worked through’. The early implementation report for the Pathfinders, (with data collection completed in November 2022 and February 2023), also highlighted how several partners found that there were often strategic discussions of what longer-term change would look like, but with shorter and more medium-term tasks and workstreams left undefined.

In the context of WFWF, Children’s Services Planning Partnerships (CSPPs) also raised the challenge of aligning activities and priorities across overarching CSPP strategies and aims, particularly as they were cross-cutting several service areas. There was an understanding that this had to be an area of ongoing focus in order to ensure alignment and join-up, but it was reported to be time-consuming.

“…we had to get a list of all of those agencies…so that we knew what each of us was offering and supporting at each of the tiered levels because there's not one place where you can see all of it together…And some of us use the same partner providers but in different ways, so it's making sure that we know who's using what for what purpose and how that all links together.” Quote from Manager, Whole Family Wellbeing Funding interim report

There was some agreement across initiatives that putting in place the core elements of system change –including increased partnership working and reducing siloed working – would take time to enact due to partners often relying on previous ways of working.

“Multiple partners and stakeholders, in both sites, stated that the process of embedding change had been a difficult one so far, as there was a tendency for organisations and individuals to want to do versions of what they had always done.” Pathfinders early implementation report

Across the two Pathfinders there was a sense of optimism and hope regarding progress in improving services and access routes for families. However, with the time needed to enact change and the reliance on the goodwill and motivation of individual staff – with limited capacities – there was also a concern around how sustainable such initiatives could be.

“In both Pathfinders, some of the early indicators of systems change, however, appeared to be reliant on the commitment of the individual staff involved and their relationship to the Pathfinder. Much of the change appeared to have been stimulated by the development of relationships between people. While this is positive, it raises some questions about sustainability, and points to a need to create formal processes at an operational level to support the new referral routes and working practices that are emerging.” Pathfinders early implementation report

Further, while the keyworker approach is frequently praised by those accessing services, there is a potential risk in keyworkers being the main source of change, as this could potentially limit the scalability and sustainability of initiatives. It may also be difficult to assess if the success of an initiative is attributable to certain personal attributes of key workers or o the wider model of person-centred and place-based support.

Sustainability and Funding

This section considers the sustainability of initiatives beyond their funding period. In particular it considers the challenges faced by system change initiatives in managing shorter term funding periods[10] and monitoring expectations with longer term system change outcomes.

For the Pathfinders, partners and stakeholders, while positive about the current levels of staff and financial resource, expressed concern about the time limited funding and what would happen when the funding ended. This was due to the resource intensiveness of the new ways of working, in that it took time to engage and support people in their journey through a system to address multiple complex needs. Therefore, it was felt that there had to be a commitment to longer-term funding in order to ensure sustainability.

However, it was not just in the Pathfinders where these concerns were evident. For WFWF, the interim report details how there was a desire for WFWF activity ‘to become business as usual’ (rather than ending when the Scottish Government funding finishes in 2026).^[11] Meanwhile, local authorities and employability staff implementing NOLB also felt that longer term funding would provide more certainty over future service delivery (NOLB implementation report).

Findings from the SIP learning programme also raise the need for longer term stability in terms of financial resource, with SIP partners suggesting that ‘progressive policy aspirations are not always accompanied by the funding that would allow implementation of these policies on the ground’. Partners have also raised a concern about reductions in local government grant funding for core services and how this might impact on the aim of moving towards more preventative support.

Further findings from the SIP highlight how the economic climate and uncertainty, despite the intention of aiming for the provision of longer-term, preventative action, can mean that service providers need to continue providing crisis support.

“While senior leaders were clear about the need to pursue long-term goals such as addressing child poverty, they also described how the current climate is pushing the statutory sector into crisis response.” Social Innovation Partnership learning programme report

Challenges in recruitment and retention of staff

Many initiatives faced barriers in recruiting and retaining staff and this is closely related to the above issues of sustainability and funding. Of note, the NOLB implementation report highlights how half of employability staff felt that employability services were understaffed. The reasons for struggles in recruiting and retaining staff was varied across initiatives. For example, the WFWF interim report details the struggles in recruiting staff due to the fixed-term nature of appointments, arising from the temporary nature of funding. These contracts were said to be ‘less appealing’ (than permanent contracts) and this was felt to ‘negatively affect the quality of applicants’.

For the Access to Childcare Fund (ACF), it was the availability of specialised staff that was an ongoing challenge, as well as the challenges of recruitment in particular geographical areas of Scotland.

“While staff were critical to the delivery and impact of School Age Childcare, projects had experienced difficulties with recruitment which, for some projects, were ongoing. This was particularly relevant for recruiting staff to care for children with complex ASN [Additional Support Needs], which required staff with more specialised skills and expertise. There was a perception that staffing challenges were more acute in rural areas, due to a smaller workforce pool and the unique barriers presented by a lack of infrastructure.” School Age Childcare (ACF evaluation report)

Further, the ACF findings – in highlighting the strong value of the keyworker approach (as discussed in Chapter Four) – suggest a need for further systemic change with regards to the recruitment of staff.

“…investing in the school age childcare workforce is an important consideration for wider roll-out that could help overcome recruitment challenges as well as facilitate the formation of relationships. Factors to consider include: pay, conditions, training and development and job security, as well as making staff feel valued, supporting staff wellbeing and maintaining morale to avoid risk of burnout.” School Age Childcare (ACF evaluation report)

The concerns that have been raised by WFWF and the ACF have also been raised in the Delivery Plan for the Mental Health and Wellbeing Strategy.

“The mental health and wellbeing system remains under significant pressure. This is having an impact on the workforce’s wellbeing and capacity to deliver support effectively and safely, as well as being able to attract, train and retain the workforce. These pressures also impact the ability of the whole system to engage with long-term strategic planning for their workforce.” Mental Health and Wellbeing Strategy (Delivery Plan)

The socio-economic context

The importance of the wider socio-economic context – for example, economic crises and increases in mental health issues - cannot be minimised when exploring the challenges facing system change initiatives. This context adds an additional layer of challenge, and an increasing level of need, to a complex and logistically difficult task.

In the past four years, we have faced the COVID-19 pandemic and the cost of living crisis. These developments have created economic instability and uncertainty. Findings from ACF have also highlighted how different locales may face heightened struggles during periods of economic crisis.

“Rural areas were also seen as being more vulnerable to economic shocks such as the COVID-19 pandemic, for example one project lead pointed out that many childminders in the rural area that they operated in had closed during this time (and not reopened).” School Age Childcare (ACF evaluation report)

Further, during the pandemic and subsequent cost of living crisis, service providers have had to change their provision and their way of doing things, while also managing new pressures as a result of the challenges faced by individuals and their families. The WFWF interim report notes, for example, that the COVID-19 pandemic and the pressures arising from the cost of living crisis have resulted in an increased demand for Child and Adolescent Mental Health Services, while the initiative has also had to contend with challenges around the recruitment and retention of staff in the children’s services sector.