Title of Paper Blackburn with Darwen Estates Strategy

Date of Meeting 15th

November 2016 Agenda Item

CCG Corporate Objectives

Through better commissioning, improve local health outcomes by addressing poor outcomes and inequalities

To work collaboratively to create safe, high quality health care services

To maintain financial balance and improve efficiency and productivity

To deliver a step change in the NHS preventing ill health and supporting people to live healthier lives

To maintain and improve performance against core standards and statutory requirements

To commission improved out of hospital care

CCG High Impact Changes

Delivering high quality Primary Care at scale and improving access

Self-Care and Early Intervention

Enhanced and Integrated Primary Care and Better Care Fund

Access to Re-ablement and Intermediate Care

Improved hospital discharge and reduced length of stay

Community based ambulatory care for specific conditions

Access to high quality Urgent and Emergency Care

Scheduled Care

Quality

Clinical Lead: Dr Stephen Gunn

Senior Lead Manager Mr Peter Sellars

Finance Manager Mrs Linda Ring

Equality Impact and Risk Assessment completed: N/A

Patient and Public Engagement completed: N/A

Financial Implications To be confirmed

Risk Identified As identified in the paper

Report authorised by Senior Manager: Dr Malcolm Ridgway

Primary Care Co-Commissioning Committee Page 1 of 1

Decision Recommendations

That the Committee note the contents of the draft Strategy and that the CCG will continue to consult with the local population and local stakeholders, to set the future direction for development, investment and disinvestment in the primary care estate.

Primary Care Co-Commissioning Committee

Blackburn with Darwen

Clinical Commissioning

Group (CCG)

Estates Strategy

September 2016

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Contents

Introduction ............................................................................................................................................ 2

Population Overview ............................................................................................................................... 2

Health ...................................................................................................................................................... 2

Estates within a National Context ........................................................................................................... 3

Drivers for Change ................................................................................................................................... 3

Estates Overview ..................................................................................................................................... 4

Alignment of the Estates Plan to the Primary Care Strategy ...................................................................... 4

Intentions of the Estates Plan.................................................................................................................. 5

Stakeholder Engagement and Partnership Working ............................................................................... 7

Financial Summary .................................................................................................................................. 8

Risks......................................................................................................................................................... 8

Conclusion ............................................................................................................................................... 8

Appendix D ............................................................................................................................................ 10

Principles of the Pennine Lancashire Strategic Estates Group .............................................................. 10

Appendix B: Action Plan of Next Steps .................................................................................................. 12

Appendix C: Estates Map including proposed new housing developments .......................................... 13

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Introduction

Blackburn with Darwen CCG has undertaken a review of the Primary Care estates in the

CCG’s area in order to align the future estate with commissioning service requirements. This

will deliver both clinical and financial benefits, though a more accessible service model and

increased utilisation of existing estate. Pennine Lancashire Strategic Estates Group has set

savings targets, with each of its two CCGs (East Lancashire and Blackburn with Darwen)

developing their own strategic estates plans.

The estates plan will be service led and as such, any estate development will naturally be

driven by the service delivery model, the expectation being through larger “hub” sites, whilst

continuing to support development of the smaller “spoke” surgeries closer to where people

live, within each of the four localities.

The estates plan adopts a system wide view, reinforcing the importance of integrated

services within any future Primary Care estates development. It is also critical that new

estates are fit for the future and able to provide services within a new model of care.

Population Overview

The latest ONS mid-year population estimates for Blackburn with Darwen are for 2015, and

indicate a total population of 146,800, with 172,500 patients registered with a GP in

Blackburn with Darwen.

The population is rising, unlike other similar towns in the North whose population is reducing.

The forecast is that the population will rise further to over 150,000 by 2021.

28.7% of residents in the borough are aged under 20, which is the fifth highest proportion in

England. Only 14.2% of residents in Blackburn with Darwen are aged 65 and over,

compared to 18.1% in the North West and 17.7% in England.

The 2015 Index of Multiple Deprivation ranks the borough as the 15th most deprived

authority in England (on the rank of average score). 31% of the borough’s LSOAs fall within

the 10% most-deprived in England.

Data from the 2011 Census states that 30.8% of the borough’s population were from Black

and Minority Ethnic groups. In 2014 around 970 foreign national adults living in the borough

applied for National Insurance Numbers.

Health

Life expectancy in the borough in 2011-2013 had risen to 76.8 years for males and 81.2

years for females but leaves Blackburn with Darwen in the bottom 10% of English local

authorities. Within the borough, life expectancy in the most deprived 10% of the borough is

12.4 years lower for men and 7.1 years lower for women compared to the least deprived

10% of Blackburn with Darwen.

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Over the last 10 years, all-cause mortality rates have fallen, along with early deaths from

cancer, heart disease and stroke, but remain worse than the England average.

Estates within a National Context

The NHS is facing extremely challenging times. Demand for services is rising faster than

funding. The cost of drugs and new medical technology continue to rise. The population is

changing, with an increasing number of older people, often with greater health and social

care needs. The traditional approach of targeted service improvements and contract

variations has in the main been successful to date. However it is now necessary to find new,

transformational solutions to meet this unprecedented challenge.

In October 2014 NHS England’s Five Year Forward View was published setting out a clear

direction for the NHS in respect of whole system integration of services, implementation of

alternative care delivery models, a greater emphasis on prevention and self-management,

and improving the quality of services by using its resources more effectively. The ‘Forward

View’ clearly set out the financial challenge facing the NHS and the actions required. In

addition, NHS England’s ‘Everyone Counts: Planning for Patients 2014/15 – 2018/19

identifies GPs and other Primary Care providers being at the heart of integrated care.

As the NHS works to redesign the delivery of services in response to the Forward View, high

quality local estates planning is crucial and will require all parts of the NHS to work together

to enable system wide transformation. It will be necessary for the estate to be reconfigured

to accommodate the associated increase of services in the community and to provide

opportunities for greater integration. Although the benefits for patients, and the NHS as a

whole may be clear, implementation of the Forward View will inevitably place additional

pressure on existing primary and community services and the estate from which they

operate. The NHS estate is therefore both a key enabler and risk to the delivery of the

objectives set out in the Forward View through its impact on quality and patient experience

and its potential to deliver efficiencies.

In June 2015, the Department of Health (DH) issued guidance on the development of

Strategic Estates Plans. A substantial improvement in the management of the NHS owned

and occupied estate is required to respond to the challenges of the NHS Five Year Forward

View.

The NHS Constitution (Department of Health 2012) includes a requirement for health

services to be delivered in fit for purpose, accessible, clean, and safe environments

protected from the risks associated with unsuitable and unsafe premises.

Drivers for Change

Within this draft strategy a number of drivers for change in terms of strategic plans, changing

populations and associated housing developments and clinical capacity requirements have

been identified.

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An initial Gap Analysis has been undertaken based on core strategies, commissioning plans

and the most recent surveys of current estate, and the CCG has identified priorities for

development.

Estates Overview

The reorganisation of the NHS has seen the ownership of the NHS Estate change over the

past year. Property is now owned by Community Providers, NHS Property Services,

Community Health Partnerships or Acute Trusts. The challenge faced by the system is to

ensure that the NHS Estate responds to the needs of the local population and is used to

support providers to deliver services that are accessible to patients and service users.

Across the Blackburn with Darwen CCG area there are 27 GP practices covering a total

registered patient population of approximately 172,500. GP practices and community

providers operate from a mixture of old and new properties in varying conditions. Space

utilisation is often perceived as an issue with many providers across the patch reporting a

lack of space having an impact on their ability to effectively deliver services. A significant

number of GP practices operate from premises that they own, some in converted domestic

properties which are over 100 years old. Others are located in rented accommodation,

comprising a mix of NHS Health Centres, some of which are approaching 50 years old, and

private developments.

Geographical access to GP practices across the area is generally good. However the

population across the CCG district is set to rise over the next few years. In addition plans to

increase the local housing stock, both within the borough and in neighbouring authorities,

will add significant pressure to existing health and local authority services with an inevitable

impact on the estate (see Appendix C).

Currently all GP surgeries across Blackburn with Darwen are undergoing a Six Facets

Survey, this will identify future requirements regarding their future suitability. Additionally the

Pennine Lancashire Estates group is undertaking a process of measuring current estate

utilisation. This has identified potential space that could be utilised by incoming practices and

or services in our two existing large health centres, namely Darwen Health Centre and

Barbara Castle Way. Work is underway to maximise utilisation of these buildings.

Alignment of the Estates Plan to the Primary Care Strategy

Blackburn with Darwen CCG’s vision for Primary Care is to function within an integrated

health and social care system, with providers working together and supporting each other for

the benefit of patients and staff. This is likely to include primary and secondary care, social

care, community nursing and the voluntary sector and will be enabled by integrated IT,

aligned incentives and contracts and a change in culture (staff and the public) to provide

high quality, cost effective services.

In addition to developing General Practice, GPs will need to work with other professionals

as part of locality based integrated multidisciplinary teams working together to prevent

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illness, promote healthy living, diagnose illness early, treat safely in line with best evidence

and educate the public in self-care and early recognition of illness.

Delivery of these services will be close to home, where safe to do so within modern fit for

purpose premises based on a hub and spoke configuration (ie larger facilities with satellite

surgeries to provide local care depending on need), or in the patients home when required.

Community bed provision may be required depending on the ultimate model of care. Primary

Care will be accessible on a 24/7 basis through core, extended and out of hours services,

utilising the best in digital communication to improve access and convenience.

Improvements in IT will include access to patients’ own records, ordering prescriptions,

making appointments and accessing medical advice and information on line.

This vision will create the foundation of an Accountable Care System, with General Practice

at the centre and operating at scale through the development of larger practice groups

commissioned via a Multi-Speciality Community Provider (MCP) contract. In this system

there will be a reduced reliance on hospital based care with more care (and thus resources)

in the community.

This ‘new’ form of Primary Care delivery, will provide the best of General Practice as well as

offering a greater range of services through working with other community based services,

the third sector, consultant colleagues etc. Staff will again want to work in Primary Care due

to improved job satisfaction, career prospects and work life balance.

The CCG will involve practices to collaboratively develop this vision together with patients

and other partner organisations.

Intentions of the Estates Plan

The Primary Care Strategy clearly states “the service delivery model is expected being

through a hub and spoke model within each of the 4 localities”. The estates strategy

priorities reflects this strategic aim of having 4 larger health centres with smaller spokes

available dependant on need. Currently there exist two large health centres ie Barbara

Castle Way and Darwen Health Centre leaving a gap of two further builds across the

borough

Prioritisation New builds and refurbishments will be prioritised to ensure they comply with the Primary Care Estates Strategy, The Primary Care Strategy and NHS policy (eg 5 Year forward View, GP Forward View etc). The status of the existing estate will also be a factor in deciding where to invest in new estate (so for example it is a priority to rehouse practices that are operating from converted housing, old facilities that are not fit for purpose etc). The location of the new builds will be determined by the needs of the population taking into account future housing developments.

As a result the CCG have prioritised the following developments;

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1. New GP and community care facility in Blackburn West – three GP practices to be relocated who currently operate from old converted housing and who wish to merge. The area is currently not served by a large health centre.

2. New GP and community care facility in the North locality - 6 practices relocating, some operating from small, outdated premises and who wish to work more closely together. This area is not served by a large health centre.

3. Prime Minister’s Challenge Fund – primary care access centre located at Royal Blackburn Hospital (RBH) site – in keeping with government policy of reducing reliance on secondary care, 7 day access to GPs etc.

The West project originated through an earlier bid through the former infrastructure fund.

This project aims to move practices from last century terraced house surgery provision to fit

for purpose healthcare services, to facilitate merger of the involved practices, provide and

expanded range of services closer to home and to an expanding population.

The North Project again fits the ambition of the primary care strategy, enabling improved

modern estate to deliver services to a growing population and to make the area attractive in

recruiting the future workforce. This project will also enable the merging of the majority of

practices within the locality and provide an increased range of services out of hospital.

Further Considerations in Developing the Primary Care Estate

A modern primary care estate will have to accommodate any new developments such as;

Multi-Specialty Community Providers

New organisational models combining traditional General Practice with community nursing, mental health and social care will require suitable estate solutions to maximise their ability to manage people’s health and wellbeing and reduce reliance on hospital based care.

Integrated Locality Teams (ILT) Co-location

• Opportunities to co-locate four health and social care teams across health and Local

Authority estates in each of the localities.

Potential Lancashire Care Foundation Trust (LCFT) Mental Health Facility

• New mental health facility proposed on land adjacent to Royal Blackburn Hospital.

This may require increased primary care support depending on the operating model

chosen.

Intermediate Care

• Feasibility into how intermediate care requirements of the CCG’s emerging care closer to home plans can be delivered through an improved primary care estate utilising existing and future premises in both health sector and other public sector services.

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Acute Hospital Master-planning

Options to re-purpose land/buildings at East Lancashire Hospital Trust (ELHT) acute site to help deliver the strategic visions of the Trust, CCG and wider health and social care economy.

Healthier Lancashire and Combined Authority and Other Future Developments

Developments across Lancashire and beyond will need to be considered in terms of how the strategy may need to evolve. However these are unlikely to alter local requirements in the estate going forward.

Information Technology (IT)

This strategy relates to current information technology developments nationally and locally,

in particular the Lancashire Digital Road map. A key requirement is that there will be a

common shared record across all services involved in the care of the population. There also

needs to be greater access for the public both to their own records and to health and care

information. Improved communications via email, social and other media will be required

along with alternative methods of accessing care such as via “Skype", Apps and the like.

Tele health / Telemedicine will facilitate consultations and monitoring of patients, with tele

care increasingly supporting peoples' independence. Decision support software for clinicians

will increasing be utilised to improve diagnosis and treatment of diseases. The estates

strategy will enable the infrastructure to facilitate the deployment of these services.

Stakeholder Engagement and Partnership Working

The CCG has developed strong clinical relationships and local partnerships as the

foundation for successful redesign of clinical pathways and is focussed on developing closer

clinical engagement and integration between primary care, secondary care, community

services, social care and voluntary sector.

The CCG has a communication and engagement strategy which details the locally agreed

approach with patients, public and local partners. The values, strategic objectives, local

plans and priorities evolve from listening to patients, the public, partners and other

stakeholders.

The CCG has established patient fora which include representatives from each GP

Practice’s Patient Participation Group. In addition to engaging with patients and carers, the

CCG work with local stakeholders including the Borough Councils, healthcare providers and

voluntary sector members.

In developing plans, the CCG reflects the priorities detailed in the Health & Wellbeing

Strategy and Better Care Fund Plans. All draft plans are consulted on with internal

committees and external stakeholders. Every opportunity is taken to work collaboratively

with local partners and providers to redesign and integrate care pathways and improve

outcomes.

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The CCG will continue to engage with the public and all stakeholders on planning and on

each specific estates proposal once the design process commences. This is all dependant

on any bids being accepted for funding by NHS England.

Financial Summary

The estate in Blackburn with Darwen CCG is made up of properties owned by Community

Health Partnerships, NHS Property Services and GP owned premises. The two health

centres operated by Community Health Partnerships (Barbara Castle Way and Darwen

Health Centres) have revenue costs of £5.364m in 2016/17 across all tenants. The other

Health Centres owned and managed by NHS Property Services across Blackburn with

Darwen are estimated to cost £942k for 2016/17. GP owner occupier reimbursements are

estimated to cost £488k in 2016/17. The reimbursable costs to GP practices (rent, rates and

water rates) for their occupancy in these properties and for those that are owned by the GPs

themselves are funded through the delegated budget under Primary Care Co-

commissioning.

The CCG is developing a summary of the capital resources required to implement the

strategy, including revenue consequences and any potential revenue savings associated

with improving the estate. These will be included in the CCGs’ financial plans going forward.

The CCG has in principle agreed to fund any increased rent and rates reimbursement costs

of the new builds. The capital funding will be provided by NHS England as a result of the

bidding process. This varies from 66% to 100% of the build costs depending on criteria as

yet to be decided by NHS England nationally and as part of the bidding process. The new

GP premises builds are working to a figure of 66%.

Risks The key risks are;

Progressing the strategy.

The property landscape in the NHS has changed considerably since the last re-organisation

when the Health and Social Care Act 2012 came into force. CCGs have no ownership or

operational responsibility for premises which fall within the remit of a number of different

bodies including NHS Property Services, Community Health Partnerships, NHS acute and

community providers and GP practices. This complex picture of property ownership presents

a number of issues, including the availability of good quality data and financial information on

which to base the identification of priorities, barriers to development and operation of

facilities and lack of control over revenue costs.

Funding streams are required to allow any developments to be initiated and the CCG would

only progress schemes once appropriate funding mechanisms have been identified. This

would include attempts to attract capital monies via government sponsored schemes

including the current Estates Technology Transformation Fund (ETTF). If any bid for a

capital grant was unsuccessful other options would be explored such as, Third Party

developer (3PD), Local Improvement Finance Trust (LIFT) and the Phoenix scheme, which

is the governments new proposed property development initiative.

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Not Progressing with the Strategy

Not implementing this Estates Strategy would mean that Primary Care would be restricted in

what it can provide in the community, preventing the increased range and scale of services

required to improve outcomes yet remain within financial targets. It would also impact on

workforce development and recruitment resulting in the decline of the primary care offer.

Conclusion

This draft strategy outlines the vision for the Blackburn with Darwen Primary Care estate

taking account of recent NHSE publications, related strategies and the CCG’s

commissioning plans. The CCG has identified three critical Primary Care schemes to ensure

the development and sustainability of primary care and to increase the range and scale of

services delivered closer to patients homes. The strategy promotes maximising utilisation of

existing premises and the wider public service estate, improving integration wherever

possible and using a prioritisation process to identify appropriate developments.

The Local Estates Strategy has an important role to play in enabling the significant changes

the NHS will have to go over the next five years and beyond, delivering savings, reducing

running costs and ensuring that all investment, including the Estates Technology

Transformation Fund (ETTF) (formally PCTF) is properly targeted.

The Local Estates Strategy is fully aligned with commissioning plans for the area, including

the Health & Wellbeing Strategy, Primary Care Strategy, and Pennine Lancashire Local

Delivery Plan and also reflects local health needs.

The CCG will continue to consult with the local population and local stakeholders, to set the

future direction for development, investment and disinvestment in the primary care estate.

The strategy will evolve into the future ensuring it continues to meet the needs of patients

and the health and care system.

Peter Sellars

Primary Care Transformation Lead

November 2016

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Appendix D

Principles of the Pennine Lancashire Strategic Estates Group

Have a high quality, value for money, well utilised estate.

Make system-wide savings, reducing estates costs by 15% over 5 years across the Pennine Lancashire Health economy - £8.85m.

Adopt the One Public Estates principles, collaboratively using space across the public and wider voluntary sector.

Fully review public estate to identify suitable co-location opportunities and solutions.

Enable delivery of the Five Year Forward View, ensuring the estate (and its management) is responsive and flexible to meet the changing needs of healthcare.

Appendix A: Commissioning Overview

Drivers for Change Estates Impact

Blackburn with Darwen CCG

Strategic Estates Plan

• In order to enable delivery of the Strategic

Plan, a more strategic approach to estates and

property management is required.

• The Strategic Estates Group has started to

work more collaboratively and this system wide

approach should allow greater efficiencies to

be made to benefit the health and social care

economies moving forward.

• Ensure estate aligned to locality model (4

localities).

Primary Care Strategy

Transformation of health care

services across Blackburn with

Darwen CGG.

• Estates are key to aiding the transformation

and development of primary care, with

significant investment required to deliver

Blackburn with Darwen’s Primary Care

Strategy.

• Enable the development of Multi-Speciality

Community Provider (MCP)

• Improve quality and capacity of the primary

care estates.

• Further the development of the Federation

and collaboration of GP practices

• Creation of community and service care hubs

across Blackburn with Darwen CCG – locality

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model.

• Relocation of services from multiple locations

to the hub model (e.g. ILTs)

• Relocate services from an acute to a

community setting – identify space following

utilisation studies.

Reduce estates costs • Increase utilisation to make core estate more

efficient and allow consolidation of services.

• Consolidate accommodation where possible,

preventing duplication.

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Appendix B: Action Plan of Next Steps

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Appendix C: Estates Map including proposed new housing

developments