Learning from the frontline re - Kent County Council · 2014. 3. 26. · April 2012: Business case developed - setting out arrangements for the Kent programme ... Families Conference

Working togetherbetter fu

ture

Kent Troubled Families Programme

Learning from the

frontline

Kent’s approach to helping troubled families

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Learning from the frontline


Contents

Introduction ............................................................................................................. Page 2

National perspective .............................................................................................. Page 4

Kent’s approach ...................................................................................................... Page 5

What has been delivered in Kent so far ................................................................. Page 7

Case Studies .............................................................................................................. Page 10

Troubled families: Kent Offer .................................................................................. Page 13

Summary of learning ............................................................................................... Page 19

Apprenticeship case study ...................................................................................... Page 20

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Introduction

We are already making steady progress in helping turn around some of Kent’s most complex families. It is now important to learn from our experiences so far, and to have honest and open conversations about what has and has not worked for these families. This will help us ensure our interventions with families can be even more effective during the Troubled Families Programme and beyond.

I am personally committed to ensuring we transform and redesign services to deliver improved outcomes for families. Together we must consider what needs to change, as your experiences of supporting these families will be vital if we are to succeed. This time round I am determined to help make sure that nothing gets in the way of working with these families.

Agencies across the public sector have all worked with troubled families for many years. Despite the best intentions and numerous separate interventions of agencies, the entrenched cycles of dependency, criminality and anti-social behaviour have continued across the generations. This has not only been at a huge cost to the public purse, but at a huge cost to the families themselves. We should not expect the traditional interventions run separately by different agencies to produce different results.

That is why I want the Kent Troubled Families Programme to be different; ensuring that agencies work together through the use of a single dedicated worker, to engage and actively challenge each member of the family.

Momentum is growing, particularly with the number of families being worked with in Kent. However, I am mindful that we still have a lot of work to do, if we are to turnaround the lives of each of the 2,560 families. Therefore in early 2014 I will be working with our partners around a new campaign for lead workers.

We would like to take this opportunity to thank everyone who has been involved in this important programme for Kent. Working together, we can integrate our services around these families and reduce the dependencies and costs of these families on our organisations.

Paul Carter, Leader Kent County Council

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Introduction

Kent’s approach to working with some of its most complex families is already achieving encouraging early results. With the commitment of an extension to the national programme by DCLG (Department for Communities and Local Government), it is important that we reflect on the work already underway and on emerging learning, so that together we can plan for the future.

This booklet pulls together emerging learning and shares experiences from the frontline; capturing the views from both dedicated workers and families in the form of case studies.

We have also published a summary of the feedback from a series of qualitative interviews undertaken with families, which we hope will provide you with a useful insight into how these families interact with and view services.

Following the conference on the 7 February 2014, we will be publishing a summary of the discussions on the day, along with any actions and/or recommendations coming out of the event.

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The Troubled Families Programme was launched by the prime minister in 2011 and is led by Louise Casey, Director General, Troubled Families, Department for Communities and Local Government (DCLG).

As part of the Troubled Families Programme, the government will work alongside local authorities to:

• get children back into school

• reduce youth crime and anti-social behaviour

• put adults on a path back to work

• reduce the high costs these families place on the public sector each year.

DCLG is encouraging local authorities to work with families in ways the evidence has proven to be more effective, for example:

• joining up local services

• dealing with each family’s problems as a whole rather than responding to each problem, or person, separately

• appointing a single key worker to get to grips with the family’s problems and work intensively with them to change their lives in the better for the long term

• using a mix of methods that support families and challenge poor behaviour.

National perspective

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A Family Intervention Model for Troubled Families in Kent

The four delivery streams of Kent’s Family Intervention Model are:

Family intervention project (FIP) workers: Providing a persistent, assertive and supportive but challenging approach. This is a county wide provision delivered through a contract with KCA.

FIP light workers: Dedicated posts focusing on family function and providing practical support. Currently accessible in nine local areas, not including Shepway, Dartford and Swale. This provision is delivered through a contract with Project Salus.

Multi-agency lead workers: (allocated from existing key partners) Act as an advocate for the family, with the ability and authority to influence other agencies.

Family support workers: Dedicated resource focussing on initiating contact with identified troubled families and holding casesloads where appropriate.

Kent’s approach to working with Troubled Families

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Delivery stream 1

Family intervention project workers (FIP)

Family intervention

Intensive

Small caseloads

• Practical hands on support

• Assertive and challenging approach

• Tenacious and relentless

Delivery stream 2

FIP light workers

Family intervention

Light

Up to 15 families per worker

• Focus on family function

• Accessible, there when they are needed

• Practical support

Delivery stream 3

Lead workers

Family intervention

Super light

1-2 families per worker

• Named lead for family with dedicated time

• Coordinate Team Around the Family support (TAF)

• Advocate for family and authority to influence other agencies

Delivery stream 4

Family support workers

Family intervention

Light

Small caseloads

• Practical hands on support

• Focus on family function

• Named lead for family

How the delivery streams work

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What has been delivered in Kent so far

April 2012: Business case developed - setting out arrangements for the Kent programme – including governance, local delivery model, coordinator post and local project delivery managers.

January 2013: Local delivery model commenced.

April 2013: JobCentre Plus employment advisors seconded to the Kent programme.

May 2013: Family intervention project (FIP) service goes live.

July 2013: Kent hosts a Troubled Families Conference to showcase the Kent programme and raise awareness about work underway.

August 2013: Local areas submit business cases for funding via a grant allocation pot held centrally.

September 2013: Kent Offer developed – creating training and apprenticeship opportunities for families.

October 2013: FIP light service goes live across eight districts.

January 2014: Suite of activities developed to complement the work with families and can be accessed via dedicated workers.

Impact of Kent’s approach

• The role of the LPDM (local project delivery manager) has enabled better coordination of local delivery, working in partnership with a wide range of agencies to target support around identified families and resolve barriers. This is the role that has oversight of the families, ensuring each family has one family plan, coordinated by a single dedicated worker.

• Introduction of the grant allocation pot – districts have been able to secure additional resources based on local needs. This approach has directly supported local priorities and helped support families on a case-by-case basis.

• Programme funding has enabled us to provide FIP and FIP light workers who remove duplication and deliver improved outcomes for families. They achieve this by working intensively with families to provide practical hands-on support, and coordinating wider multi-agency support as part of a TAF.

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• Following the introduction of the JobCentre Plus employment advisors to the Kent programme, we have provided targeted employment related support to individuals within the troubled families cohort, which has increased the number of people returning to work.

What have we achieved with families

Since the programme started we have turned around 200 families for the period up to October 2013.

Turned around means that at least one adult has returned to work and is no longer claiming out-of-work benefits and/or that the children in these families:

• are showing positive engagement and improved and sustained attendance at school

• have reduced or stopped offending or committing ASB (Anti-Social Behaviour).

We are actively working with over 780 families and are due to allocate a further 770 families, who have already been identified to receive support under the programme.

We are on track to assist a further 150 families with at least one family member back in work and no longer claiming out-of-work benefits.

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Features of Kent’s Family Intervention Model

Key features of the family intervention project worker role (FIPs):

1 a dedicated worker for the most complex families

2 looks at what’s really happening for the family as a whole

3 gives practical hands-on support4 assertive and challenging

approach.

Key features of the FIP light worker role:

1 one worker who stands alongside the family, dedicated to change

2 accessible, there when they need to be (not when demanded)

3 manageable caseloads, provide practical support and works intensively as needed

4 clear, honest, authoritative and assertive working styles.

Key features of the multi-agency lead worker role:

1 may work with a number of troubled families

2 named lead for family with dedicated time

3 advocate for family and authority to influence other agencies.

Key features of the familysupport worker role:

1 acts as initiator to engage family around programme

2 where appropriate, longer-term involvement with family

3 one worker who stands alongside the family dedicated to change.

Through the CAF process the lead worker will coordinate the TAF and ensure the family agrees outcomes and an action plan; the TAF and family will regularly review these to monitor achievements.

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Case studies

Make-up of family:

MumDadOne son aged 19Two daughters aged 7 and 15

Troubled families criteria met:

• school attendance, offending by children and unemployment.

Identified issues:

• child has mental health problems

• child has substance misuse problems

• incidents of domestic abuse

• concerns about potential harm to a child

• indications the family is known for ASB (anti-social behaviour)

• parents in the household do not have any qualifications.

Summary of presenting issues

The family were referred to the Troubled Families Programme, meeting all of the programme criteria. They were subsequently allocated a FIP worker. The FIP service was made aware of the violence issues and the family’s hostility towards professionals. The children were subject to a CHiN Plan (Child in Need Plan).

The family had been involved with a variety of agencies for more than seven years. It was commonplace for professionals to visit with the police because of the family’s volatile nature and the potential risk towards professionals.

The son, Jim, was in prison when the FIP started working with the family and the eldest daughter Claire was waiting for a court hearing date. Claire was not attending school regularly and was already at a PRU (Pupil Referral Unit). mum was not in work and dad was doing full-time voluntary work.

The Brown family – supported by a FIP worker

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All case studies have been annonymised to protect the identity of the families.

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What has happened since the involvement of a FIP

Before contacting the family, the FIP made contact with the family’s social worker, to let them know the Browns had been accepted on to the Troubled Families Programme and to agree how the FIP can support the family and complement wider work already underway – to ensure consistent outcomes.

During the first meeting with the family, the FIP advised them that they would always be honest with them about how their actions and behaviours would affect their future. The family were very open with the FIP from the start. During the first visit the FIP ensured they helped the family in some way before leaving.

The FIP made a promise that they would look into the possibility of Jim coming back home when he was released, as this was clearly a concern for the family. The FIP went on to support the family in making the necessary arrangements for Jim’s release, while ensuring they understood the importance of following the agreed plan on his release.

During one-to-one discussions with mum, the FIP identified that she had on-going problems with Jim’s ex-girlfriend. Mum received abusive texts,

phone calls and was harassed in the street. The FIP spent considerable time discussing this with mum and encouraged her to report what was going on to the police, which she went on to do. Previously the family would have found this very difficult, due to their inherent distrust of professionals.

It was evident from the direct work with Claire, that she had grown to mistrust professionals and felt they could not help her; they were “just doing their job” and didn’t really care about what she wanted.

Family outcomes

By working intensively with each member of the family to understand what was going on for them, both individually and as a family, the FIP and other agencies have gained a better understanding of the family as a whole. This has informed future work with them and led to more positive interactions with the family. As a result the family feel they can be open and honest with the FIP. They often approach them for advice or support in between visits to the family home, or after they have spoken to other agencies involved with the family.

Supporting and empowering the family to make small steps has been important, demonstrating to them that

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longer-term goals are possible, and that with the support of the FIP and wider TAF they can achieve positive change.

The family have recently said that they feel “everyone is working better together” and feel “more involved”. They also feel more motivated to change, as the FIP has given them the challenge they needed.

Through effective multi-agency working, the family are confident with the arrangements the FIP has helped secure following Jim’s release, which has been achieved by the FIP working closely with statutory agencies.

• Jim has not been involved in any reported criminal activities since FIP involvement.

• The FIP has recently introduced the JCP employment advisor to the family, who is supporting Jim and both mum and dad to look for work. Mum has recently secured a part time cleaning job and is really happy – and for the first time she is motivated to find full-time work.

• Jim recently found out that he has a son and has been supported by the FIP to gain regular contact.

• Claire has not committed any ASB or crime since the involvement of the FIP.

• School attendance of the younger daughter has been significantly improved.

• The family have been closed to Social Services as there are no current safeguarding concerns, with the family being stepped down to a TAF, following a comprehensive handover from the social worker. The FIP has gone on to become the lead professional for this family, with continued support from the TAF.

Overall the family feel that support is better coordinated since the introduction of the FIP, which has led to the family developing improved relationships with wider partners involved in the TAFs, as they feel more involved in the planning of support.

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Learning from the frontlineworkers.

Swale has funded the creation of a virtual expert team, that undertake their current statutory work, but also to release capacity to work in a more family-centred approach and to undertake the lead professional role. This will enable current practice to be challenged and practitioners to offer greater support to the families they currently engage with.

Suite of activities

RBLI (Royal British Legion Industries)- this pilot scheme takes the concept of using a Military ethos through mentoring, to a much wider scale, engaging and coaching the extended family unit in order to maximise the potential for engagement and participation at all levels. This scheme - will recruit, train and support the provision of a Military Mentor scheme, who will engage identified troubled families.

Young Lives Foundation - this pilot scheme provides volunteer mentors to work with young people in supporting them in achieving agreed goals.

Princess Trust - the programme has funded a small number of spaces across the county, offering a personal development course for young people aged between 13-25 who are out of

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TAF

CAF

Identifybest placed

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Funding to support

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RBLI Mentoring

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CanterburyRising Sun

Domestic abuse

focus

Dartford VAWK – Volunteer

mentors

Dover Challenger Troop

ShepwayFamily champions

FIP levelintervention

GraveshamLocal pot to

support families

MaidstoneParent Champion project

Response initiative

Young lives foundation

pilot

SevenoaksFamily friend

mentoring

Churches Together in Sevenoaks and District

SwaleMulti-agency family

support team

ThanetYoung lives

foundation pilot

Tonbridge and MallingRBLI Mentoring

Scheme

Tunbridge Wells

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Identifybest placed

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RBLI Mentoring

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Domestic abuse

focus

Dartford VAWK – Volunteer

mentors

Dover Challenger Troop

ShepwayFamily champions

FIP levelintervention

GraveshamLocal pot to

support families

MaidstoneParent Champion project

Response initiative

Young lives foundation

pilot

SevenoaksFamily friend

mentoring

Churches Together in Sevenoaks and District

SwaleMulti-agency family

support team

ThanetYoung lives

foundation pilot

Tonbridge and MallingRBLI Mentoring

Scheme

Tunbridge Wells

Family action plan

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Make-up of family:

MumDad- no longer has contactOne son aged 16One daughter aged 14


• school attendance, ASB and unemployment.

Identified issues:

• imminent eviction• alcohol abuse by parent• anti-social behaviour• poor school attendance• parent out of work.


The family were first referred to the Attendance Service in 2011. They were subsequently prosecuted in 2012, as attendance was less than seventy five per cent and had not improved. Attendance continued to be an issue and the EWO (education welfare officer) eventually nominated them for the Troubled Families Programme.

A number of agencies have been involved with the family over the years. Despite this the family didn’t believe anything would change for them and felt things were going on around them, rather than with them.

The family were being evicted by their landlord due to on-going ASB and rent arrears, and felt overwhelmed at the prospect of being homeless.

What has happened since the involvement of a FIPThe EWO arranged to attend the family home with the FIP worker, to introduce the FIP worker to the family and discuss how they might be able to support them.

The family agreed to complete a CAF, as the FIP reassured them that this would help reduce the number of agency meetings and better coordinate the support they needed.

At the first TAF meeting chaired by the FIP, the family were able to discuss and agree what they wanted to achieve and what support might be provided in relation to their imminent eviction. This TAF meeting resulted in multi-agency partners and the family agreeing and setting shared actions. The EWO, along with the family, school, landlord, Kent Police and a housing options officer from the local authority attended the first TAF. This was an important first meeting of multi-agency partners, as up until this point, the various agencies had not come together, either as professionals or with the family.

The Smith family – supported by a FIP worker

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Working intensively with each member of the family, the FIP has been able to unpick and understand the underlying issues within the family and support them with the changes they want to achieve.

The FIP invested significant time in liaising with other agencies around the eviction order, and was able to supportively challenge mum to make an appointment to seek housing advice. This challenge by the FIP with mum, for her to take responsibility for the situation was an important step for the whole family.

Through direct work with the children, they have been able to see that mum is being supported with the housing issues; the children cited the eviction as being the main reason for them not attending school, as they felt they needed to stay home and protect mum.

Family outcomesFeeling better supported and empowered to make change, the family have been able to engage more positively with agencies involved with them. The family have seen a noticeable reduction in the number of agencies attending the family home, and for the first time feel more in control of their situation.

Through intensive support both children are now attending school on a regular basis.

With the support of the FIP around the housing issues, an agreement with the local authority was reached, that the family could move to another area, with the local authority providing additional support to assist the family sourcing privately rented accommodation. Now their housing issues have been resolved, the family have been able to focus on planning for the future and mum has a new sense of motivation and self-confidence. Housing’s involvement with the TAF has enabled better coordination and support around the family’s housing needs.

Mum has recently sought support with her substance misuse and is looking for work. These are steps that previously she was unable to consider or take any positive action around, as she was overwhelmed by the housing issues facing the family.

The family feel a huge sense of relief now their housing issues have been resolved and are able to plan for the future.

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Make-up of family:

MumDadFour daughters aged 2, 9, 11 and 15Three sons aged 5, 7 and 13


• school attendance and unemployment.

Identified issues:

• parents concerned about fifteen-year-old daughter and her lack of motivation to apply for college or sixth form – concerned that she may end up NEET (Not in Education Employment or Training)

• concerns over seven-year-old’s behaviour and school attendance

• concerns over eleven year-old’s behaviour and running off

• No support in place for Mum’s worklessness.


The family were nominated in to the Troubled Families Programme by the school, as they were concerned about the poor attendance and behaviour of the children.

The family are currently being supported by a social worker, as the children are subject to a CHiN plan.

Dad is registered blind and mum is his full-time carer.

What has happened since the involvement of a FIP light worker

Before contacting the family, the FIP light worker made contact with the family’s social worker, to let them know they had been accepted on to the Troubled Families Programme. This enabled them to learn more about the CHiN plan and agree how the FIP light worker could best support the family.

The family are engaging well with their newly allocated worker and contact them for support around wider issues, such as liaising with other agencies.

School attendance has been an issue for the younger children. The FIP light worker has been working with them to improve their attendance, challenging mum to ensure they are ready in the

The Miller family – supported by a FIP light worker

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mornings for school. The FIP light worker has been working intensively with the 15-year-old, to empower her to make decisions around the continuation of her education.

The FIP light worker has supported the parents in setting boundaries with the children.

Social services is arranging for a social work assistant to complete one-to-one work with the 11-year-old at the beginning of 2014.

While the family have been identified as workless, the FIP light worker has started to have initial conversations with mum, about the possibility of her returning to work. When the time is right for mum, the FIP light worker will introduce her to the JCP employment advisor. Mum is concerned about how her benefits might be affected and this is something the JCP employment advisor can help with, as they can arrange a better-off calculation, to check what income she needs to achieve, should she return to work. They can also help her to look for work.

Family outcomes

The children’s attendance and behaviour has improved significantly, with their attendance currently above 97 per cent.

The 15-year-old has now applied for sixth form and has for the first time started to think about the future.

Feeling better supported, mum and dad are happy that the eldest daughter is planning for her future and that she has been assisted in applying for sixth form.

Overall the family feel that that “communication is better with other agencies” and feel “supported and encouraged to make changes”.

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Summary of learning from the case studies and the programme

• Communication and coordination across agencies is improved when working as part of a TAF, with one plan for the family – resulting in shared and agreed actions with the TAF and family.

• It is important that statutory agencies strengthen and deliver family-centred services, supporting them to achieve a broad range of outcomes; including improved attendance, a reduction in crime and anti-social behaviour and adults back into work.

• Appointing a single dedicated worker to get to grips with the family’s problems and to work intensively with them to change their lives for the better , is key to turning around families.

• The role of the single dedicated worker is key to building trust with each member of the family, and works with them to build relationships with other professionals.

• It is important to ensure that the family’s’ dedicated worker develops and maintains close links with all agencies supporting the family, including statutory agencies, to ensure interventions are informed in collaboration with them and that any interventions put in place complement wider work going on.

• Work with families is better coordinated, leading to improved outcomes for families; when social care teams and dedicated staff on the Troubled Families Programme work together.

• Joint visits assist in introducing new workers or support to families and are useful when engaging with families for the first time.

• The FIP and FIP light roles are unique, providing a window into how a family views other organisations working with them and this helps to build an understanding of why their previous engagement with professionals may have been poor or hostile.

• JobCentre Plus employment advisors are well placed to provide targeted employability support to those looking for work or preparing to return to work.

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Apprenticeship case study


Karl was diagnosed with a disability at school which affects his confidence when he meets new people and finds it difficult to talk to them. He has committed several crimes in the last few years and feels this is impacting on his ability to find employment.

Karl and his family are part of year two’s cohort on the programme, following a nomination in to the programme by the IYS (Integrated Youth Service).

The family have an increasing number of agencies involved with them; whom they don’t feel are supporting them and commented that “agencies don’t talk to each other”.

What has happened since the involvement of the multi-agency lead worker

The family agreed to complete a CAF, as the lead worker reassured them that once a CAF was in place, support would be better coordinated for them and would improve communication with and across multi-agency partners.

A TAF meeting coordinated by the multi-agency lead worker was held shortly after completion of the CAF. The family felt positive about the CAF process, as they felt their needs and priorities had been reflected in the Family Plan.

The lead worker has assisted Karl in getting support around his confidence issues, which will help him cope when meeting new people.

The lead worker feels that Karl is ready for employment and has recently supported Karl in completing a troubled families apprenticeship application form, as he is wishing to find a business admin and support apprenticeship.

Learning point: The Troubled Families Programme recognises that not every young person will be ready to take up the offer of an apprenticeship or employment. The programme has therefore worked closely with the Employability and Skills team and Education, Learning and Skills to ensure that other opportunities such as pre-apprenticeship training are available for all young people as part of the Kent Offer.

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Family Outcomes

The Skills and Employability team has contacted a training provider in Karl’s local area, securing an opportunity with an employer. Karl’s lead worker will continue to support him while completing his apprenticeship, keeping in touch with him to ensure he sustains his placement.

• Karl attends his apprenticeship five days a week and is enjoying it. The employer and training provider are both happy with Karl’s work and progress.

• The lead worker has been able to reduce the time spent providing one-to-one support and believes that Karl will soon be able to cope on his own.

Apprenticeship case study (continued)

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Summary of what’s working and what’s not

Summary of the findings from qualitative interviews with troubled families

BackgroundThe Troubled Families Programme has an extensive outcomes and evaluation framework, which includes a series of qualitative interviews with families working with the programme. This report provides a summary of the findings from the first of these interviews.

MethodologyParticipants were identified through the FIP working with the family. This helped identify families who had been worked with for enough time to be able to:

• reflect on some of the interventions received

• give a view of their situation before the programme and tell us how the programme may have changed their situation.

In subsequent interviews, the analysts will select the families, focusing on those who have turned around and achieved broader outcomes, as well as

those who have disengaged or refused to engage with the programme.

The interviews were semi-structured and took place in the participants’ homes with as many of the family members who were available at the time of interview. This is the summary on the perceptions of the families based on their experiences.

Profile of respondents• the participants were from five

families. Two families were living in Dartford, two in Sevenoaks and one in Tunbridge Wells

• one family in Sevenoaks had been working with their FIP for approximately one month, the rest had been working with their FIP for three to four months

• we were able to interview all parents; some children took part in some parts of the interviews.

Summary of key findings• Overall, participants were very

positive about the programme. Most had made significant improvements and attributed these to working on the programme and having a single dedicated worker.

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• Families were very positive about the way the FIP had engaged with them and their children and on the whole spoke very highly of their FIPs.

• Support was better coordinated, as the work of multi-agency partners was coordinated by the FIP through a single Family Plan, which families said “reduced the number of multi-agency meetings and improved communication”.

• The families felt they had changed because of the honest and open approach of the FIP worker, the practical help they have been given and because the FIP has dedicated significant time in understanding the needs and complexities of the family as a whole.

• Broken promises were a key theme throughout the interviews. Participants felt that broken promises had a negative effect on their previous relationships with agencies.

• Families felt things improved when agencies worked together as part of a TAF.

• Targeted support offered by JCP employment advisors was well received and appeared to have had a positive impact on parents progressing towards returning to work.

• Financial concerns were an issue for all families interviewed; families felt they would benefit from more financial support and advice.

Please visit the Troubled families web page for more information about the programme.

The site includes information on:

• local project delivery manager contacts

• Kent’s approach to working with troubled families booklet

• Louise Casey’s Listening to troubled families booklet.

Please visit the information for professionals section on kent.gov.uk/troubledfamilies

We look forward to hearing your experiences of working with these families and considering together what needs to change – so we can deliver improved outcomes for families.

Summary of what’s working and what’s not

www.kent.gov.uk/troubledfamilies

For information about the programme please contact:

Matthew AlgarProgramme Manager [email protected]

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Documents

Learning from the frontline re - Kent County Council · 2014. 3. 26. · April 2012: Business case developed - setting out arrangements for the Kent programme ... Families Conference