Designing Citizen-shaped Services: the 'Locality' Approach

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by Cllr Roger Hollingworth, Leader of the Bromsgrove District Council, Kevin Dicks, Chief Executive, Bromsgrove District & Redditch Borough Councils & Liz Tompkin, Head of Housing Services, Redditch …

by Cllr Roger Hollingworth, Leader of the Bromsgrove District Council, Kevin Dicks, Chief Executive, Bromsgrove District & Redditch Borough Councils & Liz Tompkin, Head of Housing Services, Redditch Borough Council

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  • ScopingVoids propertyWorked to targetsWent out on siteSaw the landscape and bins – thought must tell Guy not my serviceWent into the property – was shocked at the standardAsked if it was finished – response was yes, would you live in it No!Staff worked to target – had to reduce the target each year, cut corners done minimum workTargets were driving in poor performance even though we were top quartile against void turnaround BVPIHousing being stand alone, good place to start transformation ……But we were good already ??During scoping listened to demand – repairs demand was high Rent arrears rents were high and although they reduced year on year and met our targets …. Were we playing the system??
  • Rent Officer purpose : I need you to pay your rentIf they were told if the person was in and out of work they would listen but as far as they were concerned the job centre would deal with that.If the rent officer followed these activities they thought they were doing a good job …… “achieving purpose”Which typically would look something like this …….. Play DVD
  • Rent Officer purpose : I need you to pay your rentIf they were told if the person was in and out of work they would listen but as far as they were concerned the job centre would deal with that.If the rent officer followed these activities they thought they were doing a good job …… “achieving purpose”Which typically would look something like this …….. Play DVD
  • We didn’t understand what it felt like for the customerWe only heard the demands our system wanted – Pay your rent
  • We wanted to know what was ‘causing’ presenting demandsTo help tenants resolve rent arrears problems by focusing on demand in contextHow:Work to a set of principles not proceduresThink out of the box and throw away the rule book!!!Take ownership of cases and remove silo workingWhere:Winyates – Area identified as Highest Need662 Council tenanciesRent/Welfare Officer, Tenancy Management Officer, Home Support Officers We wanted to know what was ‘causing’ presenting demandsTo help tenants resolve rent arrears problems by focusing on demand in contextHow:Work to a set of principles not proceduresThink out of the box and throw away the rule book!!!Take ownership of cases and remove silo workingWhere:Winyates – Area identified as Highest Need662 Council tenanciesRent/Welfare Officer, Tenancy Management Officer, Home Support Officers
  • We can start to fix these
  • We need help from external partners – joined up workingHand over to Liz to talk about joined up working
  • Context of the journey mapping with partnersWe wanted to understand what was going on in our partners systemSO WE NEEDED TO FIX THE WHOLE SYSTEM.
  • When we understand the nature of demand hitting the system, from the citizens perspective we can see that not all demand is the sort of stuff that we want/are here for. Quite often much of the demand is citizens progress chasing, phoning about the same problem and saying they are unhappy with what has happened. We label this type of demand as failure demand! We see failure demand as an opportunity to increase capacity and reduce cost. If we understand what is causing it to come in we can change things to reduce it’s occurrence.As can be seen it does not matter which organisation/service we look at the findings are very similar.
  • Because our relationship with the citizen is episodic we potentially miss previous knowledge that gives context to the problem. We miss knowledge that helps us understand that things are getting worse. The silo/functional nature of our design means that we often only see/deal with our ‘piece’ of the problem.
  • Note re mentioning that the cost comparison of the case will be explained and illustrated in the Systemic Economics breakout presentation directly after lunch.
  • Old world vs new worldOwning a case - rent listings/patchesAssumptions - other teams will pick up their partsReferrals -if another agency is needed as it’s the tenants responsibility to make it happen
  • CharlotteWe work as a team rather than in our silo’sWe understand the barriers accessing other agenciesWe know the right thing to do now at an earlier stageWe understand the techniques to help people We’re not going soft we still use enforcement

Transcript

  • 1. Designing Citizen-shaped Services: The ‟Locality‟ Approach
  • 2. CONTEXT
  • 3. OUR JOURNEY • FOLLOWED THE VANGUARD MODEL FOR CHECK CHECK DEMAND CAPTURE SERVICE AREAS • ONE STOP SHOPS (FACE TO FACE) • BACK OFFICE (TELEPHONE) • RENT AND WELFARE • TENANCY MANAGEMENT • ANTI-SOCIAL BEHAVIOUR
  • 4. WHAT WE LEARNT RENT ARREARS DEMAND PROBLEM SOLVING • A high proportion of customer demand is presented through rent arrears recovery • There is typically a problem to solve from presenting demand • Presenting demand typically differs to demand in context • We typically problem solve in isolation of internal and external silos • Problem solving very often requires a multi-agency approach
  • 5. What next? We wanted to understand more about why tenants fell into rent arrears? PROFILING • We profiled 3,000 tenants rent accounts • And flowed in detail 75 customer journeys • • CUSTOMER • JOURNEYS • WHY ? • • • • 30% had never had arrears 39% had occasional arrears 17% had regular arrears 14% Were having enforcement action taken against them In and out of work Varying work hours Redundancy / Getting paid from an employer Family problems / relationship breakdowns
  • 6. What next? We decided to trial a new way of working Why? How? Where? • To help tenants resolve rent arrears problems by focusing on demand in context • Work to a set of principles not procedures • Think out of the box and throw away the rule book!!! • Take ownership of cases and remove silo working • Winyates – Area identified as Highest Need • 662 Council tenancies • Rent/Welfare Officer, Tenancy Management Officer, Home Support Officers (ASB Officer joined the team later)
  • 7. What typically happened in „old world‟? Rent Officer Monitor Account Receive payment stop eviction Enforce payment by eviction process Rent Arrears Follow rent arrears Procedure
  • 8. What typically happened in „old world‟? Customer Miss a payment Borrow money to make payment to prevent eviction Fail arrangement Rent Arrears Make arrangements to pay
  • 9. What does it feel like for customers in our ‘old’ system? We didn‟t actually know …… We only considered presenting demand…!!
  • 10. So what did we do?.......
  • 11. Working to Purpose 1 • Help me to resolve the problem(s) I have in my life/family/home community. 2 • Understand what I need from my community and support me to be involved in defining how I can participate in its future.
  • 12. Working to Principles 1 • You understand me and the problems I need help to solve 2 • You take as long as necessary to understand me 3 • You do only what is necessary to create space for me to solve my problems
  • 13. Top Demands in Context Problem to solve I need help to manage my money I need help with benefits I need a more suitable property I need support to live my life independently I need to make an arrangement I can afford I need help to equip my home I need help with my health I need help with my child/children Help me to be safe in my home I need help with my new heating system No. % 38 16% 24 10% 20 9% 14 6% 14 6% 13 12 11 11 7 6% 5% 5% 5% 3%
  • 14. System Conditions - Internal Access to advice - housing benefit entitlement Waiting List/Allocations - understanding need v's suitability of area/accomodation Access to home support - maintaining independent living ASB/Tenancy/Options cross working - different purpose Allocations policy - moving with debt Income maximization Change to heating - access to advice to use/affordability Adaptations high demand 30% 18% 13% 9% 7% 7% 7% 7%
  • 15. System Conditions - External Access to budget management/bank account advice 31% Access to advice - benefit entitlement 30% Access to finance/debt advice 24% Access to support to resolve life issues (other than addiction) Access to support to maintain independent living Access to a health service - addiction Multi-agency involvement not necessarily solving the problem (different purposes) Access to advice - income maximization 13% 13% 9% 9% 7%
  • 16. Realisation... If we continued to work with partners in the same way, they could not help as they were constrained by their own system.
  • 17. What hits front doors isn‟t all work... Police Meet the numbers 64% Value 36% Failure Be the gatekeeper 47% Value 53% Failure Housing GP Access Centre . Demand is rising we need to keep appointments short We worry about eligibility and risk 65% Value 35% Failure 63% Value 37% Failure
  • 18. What does it feel like for citizens Understanding their journey through our system
  • 19. What did we know about ‘A’ & In 2001 In 2004 In 2008 when... “I can’t cope” Health • My health is deteriorating • Depressed and in pain Relationships • I’m struggling to cope with 3 children • I’m trying to cope with 4 children on my own & am pregnant • Impact of DV on children • My relationship is under strain • I’m struggling to cope with 6 “I need help” children Home Self • I’m homeless • I live away from my • I’ve been threatened with eviction family • I need a bigger home • Isolated socially “I need help” Employment • I’ve had to give up my job “I need help” Finance • I’m struggling financially • My ex has left me with debts “I need help” Safety & Security • I am a victim of domestic abuse • I’m a victim of sustained domestic abuse • I’m being harassed by my ex • I’m worried about keeping my daughter safe
  • 20. Capability and Cost What ‘A’ this many And it took said she wanted: people to deliver it... • “I need help with • 8 Social Workers. housework and... • • ..gaining access to the 22 Support Workers allocated. of the upstairs • 30 Referrals in core flow. property. • • The two things in core 16 Assessments that flow. have such a would profound effect on • 36 Teams/Services. mine and the children’s lives.” What ‘A’ received: • 2 x Anger Management Courses for 2 boys. • Triple P Parenting Programme. • Help cleaning 1 bedroom. • Toilet frame, Perching stool & Bath board (for a bath she could not access)..
  • 21. Capability and Cost Cost of what ‘A’ wanted: • Cleaner, 10hrs/wk for 4 years: • Move to suitable property: • Stair lift: • Total: £14,560 £1,200 £5,000 £20,760 Cost of what ‘A’ has received: £120,000 • Under-estimate £100,000 of all activities £80,000 £60,000 since mid-2008. • Use of 2009 costs. £40,000 £20,000 £• TOTAL: £106,777 2008 2009 2010 2011 2012 to Oct
  • 22. And it‟s not over yet! Current Approach Alternative Approach Current Approach Projection Alternative Approach Projection Assumptions Assumptions • Court action re ‘A’ and her Father. • 10 hrs cleaning each week until • 5 children remain in foster care youngest son leaves foster care. until they are 18. • Not including further intervention • Not including further intervention by police or s/services by police or s/services. • TOTAL CUMULATIVE COST: • TOTAL CUMULATIVE COST: £781,541 £60,800 Calculated using DfE Family Savings Calculator
  • 23. We worry about risk!!! T We record everything S Needs are complex We focus on activities and targets!!! We focus on doing our bit and then pass it on Protect our budgets/ income We process issues rather than fix them We notice and record when people aren’t coping but don’t do anything about it P No-ones taking responsibility for helping me solve my problem We use standard risk assessments to decide whether this one is for us or if we can pass it on Referrals between agencies are the way to get things done We don’t trust each other or citizens We close the case if other agencies are involved Referrals lead to more referrals We only do what we have to Thanks but that does not help me Knowledge is power, we are more special than you are My problem is getting worse We pass info to other agencies even when we don’t expect them to do anything There are multiple assessments by multiple agencies Everyone's got a bit of knowledge but noone’s doing anything even when its getting worse There are real barriers to sharing data
  • 24. Summary of Learning 1/2 • We believed what we were doing was working; making a difference – it isn‟t. • We missed opportunities to provide real help. • Red flags not „heard‟ or „seen‟ in the system. • We didn‟t understand what mattered to the individual or the problem to solve • The system focuses on the child – we miss/fail to act on the stated needs of the adult. • We intervene with sanctions, coercion & threats – not help.
  • 25. Summary of Learning 2/2 • We work in silos – we chop up people into functional activity. • Assessment/referral leads to more assessment/ referral but problems don‟t get solved. • Everyone‟s got a bit of knowledge but no one doing anything meaningful even when things are obviously getting worse. • It‟s OK because we have plans in place & review activity (not outcomes). • Our work is crisis led. • We have an episodic relationship with citizens
  • 26. OUR LOCALITY APPROACH
  • 27. Working to Purpose 1 • Help me to resolve the problem(s) I have in my life/family/home community. 2 • Understand what I need from my community and support me to be involved in defining how I can participate in its future.
  • 28. Working to Principles 1 • You understand me and the problems I need help to solve 2 • You take as long as necessary to understand me 3 • You do only what is necessary to create space for me to solve my problems
  • 29. Old World v‟s New World Policy and Procedures Target driven Purpose and Principles Measures driven Team Specialisms in silos: • Rent/Welfare Team • Tenancy Management Team • Home Support Team • ASB Team (different directorate/location) One Team based in locality: Housing Locality Leader Housing Locality Officers • Rent Specialism • Tenancy Management specialism • ASB specialism Home Support Officers
  • 30. Old World v‟s New World „Case is on my list/my patch therefore its my responsibility to deal with it‟ Other teams will pick up their responsibilities „Referrals‟ „I am the owner of this case‟ „How can I help you get the help you need‟ „Pull‟
  • 31. Measuring Outcomes The Triangle Specialist Professional Help (Long Term Support Needs) Multiple Problems to solve (I could go either way) Housing professional problems to solve (I am living my life ok)
  • 32. How are we doing: The Triangle Where did I start? 5% 31% Specialist Professional Help (Long Term Support) Multiple Problems to solve (I could go either way) 64% Housing professional problems to solve (I am living my life ok)
  • 33. How are we doing: The Triangle Where did I start? 5% 31% Where did I end up? Specialist Professional Help (Long Term Support) Multiple Problems to solve (I could go either way) 5% 15% 50% 64% 80% Housing professional problems to solve (I am living my life ok)
  • 34. How are we doing?: Trial Cases in rent arrears` • 65% of the cases have been successful • 35% even though arrears have increased, it has been a result of external influences • All customers still engaging with us on some level. • 4 properties have become void and re-let • 3 of the new tenants have a clear rent accounts • 1 of the new tenants although in arrears due to a change of circumstances is working with us. 26 Winyates Cases: Arrears Position, Feb‟12 – Aug‟13
  • 35. How are we doing?: Rent arrears figures
  • 36. What does it feel like to work in our „new‟ system? • • • • “We know what the „right thing‟ is to do” “We know how customers feel about our service” “We work as a team rather than in our silo‟s” “We have other agencies now working along side us instead of against us” • “We know the right thing to do at an earlier stage” • “We‟re not going soft we still use enforcement”
  • 37. What it feels like for a customer What we do now
  • 38. • Lives with husband & 3 children • Health problems. • Multiple debts. • Depression. Donna • Helps others but never asks for help. • A pillar of the community.
  • 39. Understand Me Donna
  • 40. Melanie • 3yr old daughter • 18yr old son living with her. • Evicted. • Drug addiction. • Multiple debts. • Depression and extreme anxiety. • Long time to create relationship with Melanie
  • 41. Understand Me Melanie
  • 42. Susan • Lives on her own. • Originally known as perpetrator of ASB. • Financially abused. • Agoraphobia sufferer. • Left without utilities. • Health problems. • Sedatives.
  • 43. Understand Me Susan
  • 44. And it’s not over yet …… We‟ve only just begun ……….
  • 45. Any questions?