A thought project that describes how a two tier authority like Lancashire County Council could work collaboratively with district councils using co-production as a new way of engaging communities.
2. A Commissioning Co-production
County Council
“Co-production means delivering public
services in an equal and reciprocal
relationship between professionals, people
using services, their families and their
neighbours. Where activities are co-produced
in this way, both services and
neighbourhoods become far more effective
agents of change“
nef/NESTA
A Thought Piece
Bren Cook
District Partnership Officer
3. Co-production Principles
•Building on people’s existing capabilities: altering the delivery model of public services from a deficit approach to one
that provides opportunities to recognise and grow people’s capabilities and actively support them to put them to use at
an individual and community level.
•Reciprocity and mutuality: offering people a range of incentives to engage which enable us to work in reciprocal
relationships with professionals and with each other, where there are mutual responsibilities and expectations.
•Peer support networks: engaging peer and personal networks alongside professionals as the best way of transferring
knowledge.
•Blurring distinctions: removing the distinction between professionals and recipients, and between producers and
consumers of services, by reconfiguring the way services are developed and delivered.
•Facilitating rather than delivering: enabling public service agencies to become catalysts and facilitators rather than
central providers themselves.
•Assets: transforming the perception of people from passive recipients of services and burdens on the system into one
where they are equal partners in designing and delivering services.
nef/NESTA
6. Process
OCE/Strategic
Partnership
Dem
Services
Legal
Services
County Council, Cabinet,
Three Tier Forums, O&S
Comms
Public
Health
Joint Strategic
Planning and
Research Unit-
Commissioning
JSNA
Policy
Development
Contracting/
procurement
Quality and
Performance
management
Workforce
Development
Strategic
Planning
Transport and
Strategic
Highways
Finance and
Resource
Specifying/Commissioning
Business Design
Organisational
Development
Policy
Development
People, Place Cross Cutting Commissioners
7. Place
Commissioned Services
What
Public Realm, Highways Engineering Maintenance Services, Street lighting and Streetworks,
Public Protection services, Waste Management, County Analyst, Country side services, footpaths,
sustainable Transport, Winter Maintenance Services, etc
How
Strategic planning, community planning (including elected members as community champions),
partnership working and commissioning.
9. People Place
People Place
People Place
Joint Strategic
Planning and
Research Unit-
Commissioning
Process
Districts
Districts
Districts
Districts
Districts
Districts
Districts
Districts
Districts
Districts
Districts
Districts
10. Joint Strategic
Planning and
Research Unit-
Commissioning
Process
People Place
Districts
Districts
Districts
People Place
Districts
Districts
Districts
Districts
Districts
People Place
Districts
Districts
Districts
Districts
Priorities
11. District
Level
Geographic Neighbourhoods
Community
Based People
Teams
Community
Based People
Teams
Community
Based People
Teams
Community
Based People
Teams
Local Governance and
Accountability
County, District and Town/Parish Councillors Neighbourhood Members
Partner agencies, voluntary and faith organisations People Place
Area
Joint Strategic Planning
and Research Unit-
Commissioning
Process
12. Efficiencies will arise from
• Co-production with communities
• Early intervention and prevention
• Managing whole system flow
• Managing demand
• Managing easy access
• Integrating frontline experts
13. Universal Services
Sorting
Assessment
Multi Age Agency
Co-located
Neighbourhood
Preventative Teams
Additional Need Complex Need Protection
Multi Age Agency
Specialised/acute
Teams
Area/District wide
Managing Demand Flow
This is presentation is about whole system change.There are great dangers in not delivering cost savings and efficienciesby taking a simple procurement model of commissioning Commissioning is more about decommissioning and setting the style and methods of delivery as it is about procuring and contracting. The future of local government could be more embedded in communities by using a commissioning co-production approach that reduced the size of bureaucracy and increased the daily interaction with the communities of Lancashire. The change would take several years though very quick wins could come from re-engineering frontline delivery and tackle process, strategy and governance in that order to develop a logical set of structures.
Currently the County Council is organisationally configured around thematic directorates. Each has it’s own hierarchy and discrete control over resource and professional priorities. The communities of Lancashire are not organised in this way. This fact makes the County Council the wrong ‘shape’ to do some of it’s tasks efficiently. The actual business of the Council can be ‘chunked’ into People, Place and Process and can be reconfigured in the following way with a clear delineation between commissioners and providers. This way of looking at the shape of the council takes a functional view rather than a thematic approach.
Process functions can be clustered in two distinct places.Office of the Chief Executive/strategic partnership: Would retain the traditional legal and governance functions as well as the new Public Health work. Procurement and contracting might sit with the SP. Commissioning- Joint Strategic Planning and Research Unit : this new entity would facilitate needs and priority analysis, specifying and commissioning plus monitoring and evaluation. This diagram is not exhaustive or particularly accurate in showing existing functions. This ‘unit’ would combine existing commissioners and their functions together in one unit.
Place functions require specific activity and it’s primary tasks are often strategic and require economies of scale. This is not to say that the interface between these functions and communities do not need managing effectively. This diagram does not describe partners responsibilities for Place type activity such as housing, refuse collection and environmental health.
There is a compelling argument for a more radical approach to how the County Council works with the communities and neighbourhoods of Lancashire. The common point between all services that work with people is either a ‘family’ or a neighbourhood. This is the logical point at which to start commissioning activity that will lead to significant outcomes. Professional and Communities working together using co-productive techniques can be efficient and effective. Initiatives such as Total Family, Total Place, Connecting Communities, Big Society all require flexible, responsive and chaordic organisational shapes. 19th Century models of municipality will not meet the new agenda or deliver efficiencies. This ‘people’ model realigns CYP and ACS themes. A sub text of this approach would be a shift of resource away from specialisms to a more generic preventative use of staffing roles.
The geography and demography of Lancashire is not dissimilar to a small country and the shape of the organisation must be able to cope with the complexity of neighbourhoods and, at the same time, be strategic. This slide attempts that reshaping. The proposal is to divide the county into 3 discrete areas. This would mean people and place functions in each area and the process functions held centrallyThe people and place functions would relate directly to a district context
This path shows the flow that commissioning would take through local partnership and governance arrangements such as LSP’s and Three Tier Forums. A emphasis would be placed on co-located frontline teams gathering intelligence informing the services needed to get co-productions into the neighbourhoods of Lancashire
A district level perspectiveEach district can be divided into human scale geographical neighbourhoodsPeople service teams could be based in neighbourhoods developing co-production with the communities being accountable to a local governance arrangement (potentially a similar model based on the three tier forums currently proposed). The commissioning and operational support levels interact with the district level
Most people can normally access existing universal services.A smaller number will need swift access to preventative activity before returning back to ‘mainstream’ provision. A relatively smaller number will need specialised help or even protection. By taking a preventative approach as described in the Total Family work it would be expected to have better outcomes and better efficiencies.This could happen if commissioned.