Cornwall Voluntary Sector Forum Promoting Change Project Final report 2014–2016

A map of Cornwall showing households at risk of poverty from 0 to 81 per cent.(source: Cornwall Council)

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Executive summaryThe Cornwall Promoting Change project aimed to identify hidden aspects of the experience of people facing severe and multiple disadvantage: specifically young people going through transition and women with complex needs

The Lankelly Chase Foundation states that people who face severe and multiple disadvantage need genuine opportunities to transform their lives. By a ‘genuine opportunity’ Lankelly Chase means one that helps the individual overcome all aspects of the disadvantage which they face, so that they can be and do the things that they value in life.

However, within Cornwall the findings of the Promoting Change project show that we are far from ensuring those who experience severe and multiple disadvantage are prioritised and supported effectively.

The consequences of this failure to offer coordinated, effective prevention in the support of vulnerable young people and women with complex needs are explored in the full report.

Key findings• Clients find themselves navigating complex systems to identify support, often

receiving repeated help from a variety of agencies. Due to this multi-agency, complex approach clients describe how they then have difficultly establishing trust in any relationships with front-line workers, because experience tells them the relationships are short-term. (Film: Elaine)

• Clients and front-line workers describe the need for a compassionate approach to support that ‘nurtures’ the individual. (Film: CASSPlus)

• Positive experiences rely on experienced advocates who establish a long-term relationship and have collective oversight of the ‘whole person approach’ rather than tackling each area of experience as a problem that requires ‘solving’ through targets set by commissioning frameworks.

• The statutory sector has to make critical decisions in light of reduced budgets. The most immediate impact front-line workers have described is the reduction in preventative or non-statutory services, that levels of unmet need are growing, and vital support for individuals experiencing severe and multiple disadvantage is being reduced or cut altogether. As a consequence, clients are really suffering at the sharp end. (Film: WRSAC)

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• The action learning sets have offered the front-line worker a positive environment for independent supervision and reflection.

• The cash grants available through the Promoting Change project have filled a small but essential gap in addressing unmet need. They have offered a flexible approach to shift client experience of poverty, distress and isolation. The biggest positive impact recorded on the survey of the grants was on the client’s wellbeing. People felt more empowered and positive, with the sense of a fresh start and maintaining more positive family relationships.

• Without secure future funding, the staff describe insecurities in their role and redundancies throughout the sector. The continuing capacity of the voluntary sector to offer creative solutions in the time of great austerity has to be applauded. But it is also important to reflect on the true impact on front-line workers of such a pressurised environment where. ‘the sector seems conditioned to accept how brutal and cut-throat the working environment is,’ and where ‘everyone is made to feel that they are dispensable.’ Despite this, the voluntary sector and civic society are still managing to innovate and deliver.

• Voluntary sector front-line workers have demonstrated their commitment and dedication to ensuring the needs of their clients continue to be met. They have stressed that the best protection for the sector lies in us all working together:

The findings of this report tell us we need a much more collaborative approach with all stakeholders to see how we can align their services to meet the needs of those who experience severe and multiple disadvantage. Any future investment in the voluntary and social enterprise sector must concentrate on building resilience and capacity to tackle the challenges highlighted in this report.

This help overall has been totally life-changing. I have gone from feeling like a failure to being able to support my family. I can take back control of my life and care for my family properly; I would not have been able to cope much longer without this help!To work in ways that are mutually

beneficial and which contribute more fully and effectively to the wellbeing

of communities in Cornwall.Cornwall Compact 2010

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Aims and objectivesFor the purpose of this project we concentrated on the following two areas:

Women with complex needs – within Cornwall’s low-wage economy, which has high levels of self-employment, women may be in multiple roles and uniquely positioned within households and communities to be a force for positive change in unlocking severe and multiple disadvantage.

Young people in transition from youth to adult services – this transition has been recognised as critical by numerous reports. We targeted those aged between 16 and 25 facing inter-related problems, often on leaving ‘care’, and vulnerable to offending and associated exclusions.

In addition we wanted to:

• Shift commissioning practices to better address these clients’ needs.• Find new ways to promote the voice of service users and empower them.• Promote excellent, person-centred, transformative services for people facing

severe and multiple disadvantage.• Through working with those living with severe and multiple disadvantage, seek

to identify the hidden aspects of their experience, and promote the user voice in order to transform services.

• Focus on learning and how we can work differently to support complex client groups.

Voluntary organisations were identified to work in partnership. In order to participate, each voluntary sector partner signed a partnership agreement which underpinned the principles of the collaborative approach of the project. The following partners were involved with the project during year one and/or year two:

• CASSPlus• Devon & Cornwall Housing: Foyer• Dracaena centre• Pentreath LTD• ReZolve• Talent Match• Trelya• WRSAC• Young People Cornwall

What was involved?Cash grants• A total of £50k was available for individuals experiencing severe and multiple

disadvantage in the form of small cash grants. This also offered partner organisations the experience of a different way of supporting clients through access to grants.

Action learningFront-line workers were offered the opportunity to attend an action learning set to support their continued professional development.

Engagement• Over the three years, a number of engagement activities took place with young

people, women with complex needs and front-line workers of voluntary sector partner organisations. We wanted to find out what it is like to live with severe and multiple disadvantage. Some of these experiences have been captured in a film about the project.

• In addition we felt it important to explore the professional experiences of front-line workers who work with complex client groups. What is it like to work with individuals and families who are in crisis and who require the support and guidance of multiple services?

Client characteristics40% accessed education and training

49% accessed counselling services

74% experiencing mental ill-health

100% not currently employed

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Client characteristicsThe data we gathered shows some clear trends in characteristics of the clients involved in this programme. The majority of individuals as expected were aged 16-24 and 75 per cent were female.

The most common areas of severe and multiple deprivation were: serious mental health problems, some form of violence or abuse, substance abuse and severe problems with finance. A range of other problems included: homelessness, ill-health, a caring role, self-neglect, low confidence, social isolation, no work, out of education, no support from other organisations. Social issues included domestic abuse and substance misuse, alongside a high prevalence in economic issues like extreme poverty and debt. Among many of the young people interviewed; homelessness and not being in education, employment or training (NEET) were very relevant to their current and previous situations.

Mental health and wellbeing issues were the most common characteristic presented by the individuals at 74 per cent currently experiencing mental health issues. People spoke of mental health issues that had not been understood – maybe from childhood – that were complex, had not been investigated and were not being supported. A large proportion had also accessed previous support around mental health services, most commonly counselling. (Film: Will)

Unemployment was another very common issue among the group, with no individuals currently employed. 40 per cent of clients had accessed education and training services.

Low levels of anxiety together with social isolation; low self-esteem and confidence have been ingrained into the clients leaving them vulnerable with low resilience, yet moving through life from one crisis to the next. For many it is the social norm and what they expect life to be like. (Film: Dean and Anna)

The levels of complexity of every client coupled with real, everyday experiences of managing crisis in their lives have a severe impact on their wellbeing. These levels of complexity – which often include drug and alcohol dependency – should not be underestimated, nor the potential barrier this label can be to receiving support for other issues such as mental health.

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45%

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Previous support accessed by client

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Young people in transitionWhat they told usFor the young people involved, poor experiences of care, education and services have led to them being sceptical and distrusting. Many had the ambition to achieve but lacked the emotional strength to make something happen. The reality of poor organisational skills and support from a stable family environment makes moving forward an uphill task. However, those working with this client group felt that there was always hope when working with young people.

The majority of young people described experiences of complex and chaotic lives from a very young age – some as young as nine. They spoke of the negative cycles they fell into from those early days and how they had always felt trapped and powerless.Early lifestyle had had a big impact on them and they had struggled to cope and learn techniques to deal with problems in the future.

Chaotic lives and issues at home led them to be removed from activities they saw as ‘normal’, such as school. They recognised that this led to them always being treated differently by others and a lack of opportunity to socialise with their peers.

The majority of the young people spoken to had experience of multiple services and places (such as home, schools etc.). Some young people described the challenges of living in more than one home at a time due to family circumstances. In general, experiences were seen as negative, not helpful and not meeting needs.

One of the most common experiences that the young people had encountered was homelessness at some point in their lives. Each story highlighted how lost and alone they felt and unable to cope during this period. Resilience is low and support networks weak. An additional, longer lasting emotion identified was the feeling that they were not ‘wanted’ by anyone.

What works well?Once the young people had accessed suitable support and services, they realised that there are plenty of people who can help and many things on offer. The difficulty is finding them. Some of the ingredients mentioned by young people that worked for them are listed below:

• Adult services that help build self-belief and help someone start to achieve.• ‘They respected me, so I respected them’ – being listened to and understood.• Communication and keeping in contact to explain what is going on and being

kept up to date with what is happening.• Time to help a young person realise that it is not all their fault, to learn to take

a step back and see the bigger picture.• Looking to the future rather than the past.• Practical activities and programmes that support young people with life-skills,

encouraging them to meet new people, go out, do things, take courses etc.

(Film: Callum)

I felt alone, I felt like the whole world was just passing me by. I felt trapped. My mum used to tell me not to say anything to them (social services) because if I did they might take my little sister away.

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Women withcomplex needsWhat they told us For many women participating in the project, poor social networks and support made it more difficult to commit to something, even over a relatively short period of time. Many had experience of other programmes or support, which had stopped before they were ready to continue alone, which had led to distrust. They had also been labelled in the past to be ‘not engaging with support’.

The women are experiencing disadvantage but do not necessarily fit into any particular fixed criteria for statutory organisations to support them, due to their targeted approach.

Many women felt ‘beaten down’ with their situations and without hope. Stories back to childhood spoke of complex and dysfunctional family life leading to patterns throughout their lives. The impact of early years had led them to make assumptions about themselves and their lives. Some believed that this was their path from now on.

Others spoke of attempts they had made to be ‘a good wife and mother’ and ‘do the right thing’ in the hope that this would lead to being seen as a better person and more likely to be respected and valued.

Cycles of other issues used as coping mechanisms were common, including drugs and alcohol.

What works wellAccess to 24-hour telephone line or online forums: easy access to support was essential in the early stages as highlighted above. Women highlighted the value of hearing helpful tips on how to cope. Whilst the value of this platform enabled them to be anonymous, they did not want to feel ‘invisible’.

Face to face support: all the women identified groups as excellent once they had found one or overcome their fear of joining a group. Peer group support within a structured environment provided at regular intervals and venue offer women a routine and safe place to meet. Meeting others in the same position was invaluable and many women spoke of the new friendships they had formed through having a

common bond. The size of the groups was important as were the qualities of the facilitator who needed to ‘get it’ in order to be helpful.

For some women, groups that were activity-based provided friendship and support, and they spoke of a ‘healing process’ from attending. (Film: Sam)

Women identified the value of practical support, once they were on a pathway of getting things sorted.

Many of the women interviewed identified the qualities in approach that really made a difference to their lives. In essence successful support was described as ‘not rescuing’ but ‘empowering and helpful’. Women recognised that they themselves held the key to improving their lives and saw the support workers’ role as building their confidence to do so. (Film: Elizabeth)

Women spoke of the value of taking a step-by-step approach to making the changes they needed to make in their lives and valued services that worked in this way. They spoke highly of structured programmes that enabled them ‘to look at the layers and deal with each when they were ready’.

I have perpetual hope that my life will get better if I work hard.

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Cash grantsWhat we didThe Cornwall Promoting Change project has provided cash grants, funded by the Lankelly Chase Foundation and administered by Cornwall VSF, alongside intensive support to recipients provided by a number of partner organisations.

The project and the accompanying research on its impact represents a new approach to understanding the importance of grant provision and how this can be delivered to achieve the most benefit to recipients and society as a whole.

Each client who applied for a small grant had to meet the following criteria:

• Three identifiers of severe and multiple disadvantage• Living in Cornwall• Unavailability of funding from any other source, either

statutory or voluntary

How the grants were spentDuring year one, £24k was apportioned to individuals via the partner organisations. A total of £18.5k was allocated through 36 grants of £670 on average. The underspend was transferred to year two.

During year two, £31k was allocated. This included 24 grants to individuals, plus additional group activity. The average grant per individual was £712 from over 20 individual grants. £10,453 was allocated to group and counselling activity.

Many of the grants were used to provide some form of support to give the individual the ‘tools’ to move on into college, training and work (paid and unpaid). Examples included money for travel, vehicle, insurance, petrol, laptops, clothing, personal grooming, and courses.(Film: RIO)

0 10 20 30 40 50

Bills

Rent

Rent arrears/deposit

Clothing (young person)

Transport

Household repairs

Clothing (children)

Clothing (adult)

Medical support

Vehicle

Social activities (children)

Social activities (young person)

Beds/bedding

Baby/children needs

Sports/recreation

College/training course

Carpets

Equipment for training

White goods

1-1 support

Driving lessons

Counselling

Other

Group support

Social activities (adults)

How the grant was used

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What we learntPartner organisations found it difficult to allocate the grants due the capacity and frequent changeover of staff. Discussions were held regarding the collective and individual needs of clients that could be best met by having access to a grant. As a consequence, in addition to direct funding to individuals the following activities were funded: counselling, St Austell youth club, and two women’s groups for women aged 16–25 and over 25. (Film: Young People Cornwall)

The grant-giving system was flexible enough to fund very specific pieces of equipment that appear to have facilitated a step change in the recipient’s life.

• One individual had been suffering from a range of issues, including bullying and harassment from neighbours. The installation of CCTV (from the grant) has begun to provide the confidence to enable the individual to leave home and begin to socialise again.

• Having the equipment (art, nail craft etc.) has given the client the tools to start to take forward an activity either as a hobby, or for training and future employment.

A number of further grants were used to fund a project worker to work on a one-on-one basis with a group of clients with very complex and long-term needs and issues. The project worker’s role included building trust with the client, identifying their needs and trying to engage them to move forward. In many cases this included referring to other agencies, providing advocacy support, completing forms for benefits and supporting client through legal issues.

Outcomes There were no negative impacts recorded. The biggest positive impact recorded on the survey of the grants was on the clients’ wellbeing. People felt more empowered and positive (80 per cent of respondents chose this option among others), the sense of a fresh start (57 per cent) and maintaining more positive family relationships.

The monitoring and feedback suggests that the relatively small amount of money has enabled them to really move forward into accessing further training and work. For many, in particular the younger people, having the same equipment and personal effects as others improved their own self-esteem and built their confidence to attend courses and training. The biggest impact appears to have been the provision of a range of personalised requirements.

Individuals described how the grants offered opportunities for change, but for many the journey will be a lot longer. A key reflection is the time is takes for the client to build trust and a bond with the project worker. The reality is that the instability and vulnerability of the clients means that setbacks are continual, progress is slow and improvements are almost impossible to sustain.

Most workers and clients learnt that buying an item or spending some money on a course was not going to change their lives on its own. Key to the successful implementation or use of a grant was to have the ongoing support of a trusted worker or supportive social network.

Case study provided by a front-line workerWhen I first met J, she was in ripped clothes and very untidy. She told me these were her only clothes and she could not afford to buy any others. She had no phone or way of contacting us or other organisations helping her. She was also in need of basic toiletries and this was knocking her self-confidence. She was also wearing a lot of wigs as she was not able to afford the hairdressers, which was also affecting her self-esteem. Money was used to buy her clothes, toiletries, a phone and a series of visits to the hairdressers. As a result, her confidence has grown and she is beginning to engage with support.

Outcomes from cash grants

80% felt more empowered and positive

70% said it reduced stress and anxiety

58% said it gave them an opportunity for a fresh start

25% said it helped to alleviate

escalating crisis

43% said it helped improve family life

22% enrolled in education/courses

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Action learning setsWhat we did An action learning set is a process which involves working on real challenges, using the knowledge and skills of a small group of people combined with skilled questioning, to re-interpret old and familiar concepts and produce fresh ideas.

A single action learning set was established for staff working across groups, young people and women with complex needs. It was agreed that a single group would offer the best opportunities for the set as front-line workers reflected that they were all facing similar issues. The set also aimed to fill a gap not met by any other peer forums or networks that front-line staff could participate in.

Objectives for the action learning set• Seek to understand partner organisation objectives and motivations• Develop an overview of the sector to achieve common goals• Constructively challenge common practices• Build credibility and trust in relationships with partners in the sector• Model inclusion and empowering ways of working within communities• Model behaviours that show respect, assertiveness, openness and cooperation• Maintain close contact and links with third sector groups and networks• Seek to understand others people’s motivations and needs• Review own practice• Opportunity for personal and professional development• Maintain openness and ability to change• Display honesty about not being informed on all issues

What we learntThe biggest and most popular reflection was that members ‘loved’ being part of the set and in particular valued the ‘support, enthusiasm and the social group that they have become over time’. The mutual understanding and trust built up has been invaluable.

A positive aspect was the peer support action planning drawn from being a part of a group of people from different backgrounds but with similar issues and challenges.

OutcomesEveryone reported the good professional links and networking from being part of a facilitated action learning set. They highlighted a number of outcomes resulting from this:

• Greater knowledge of what other services provide built confidence in being able to signpost and refer clients.

• Updating their own contacts and links with other professionals – some reported that they had increased their referrals.

• Identifying services that can meet with clients and work directly with them.• Seeing the advantage and value of working with clients more holistically and

staring to offer a wrap-around service.• Insight into how other organisations operate and the issues they face. One

organisation mentioned that they had secured funding on the basis of the partnerships they had formed through the set.

I have taken note of my attitude towards work and I recognise that sometime I have an unhealthy relationship with working which can lead to feeling burnt out and resentful – I will learn from this.

Present your challenge, problem, issue ot your question

Learning Set members question you to challenge views & understanding perceptions, assumptions. Others share knowledge invited by presenter of issue

Insight? New understanding, ideas on taking action?

Test out taking action in the workplace.

Test out taking action in the workplace.

Bring results back to set. What worked/didn’t? Why?

Mark learning, draw conclusions, define learning from experience. Integrate new knowledge into your practice.

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TYPICAL ACTION

LEARNING SET

PROCESS

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Experience of front-line workersThere has been major review of local authority spending, which inevitably leads to increased pressure on both statutory and voluntary sector provision. Partner organisations have been faced with major cuts to budgets, which have led to redundancies and impacted on staff capacity and morale.

Front-line workers who have been involved with the project have been made redundant or moved on to alternative employment. It was therefore difficult for organisations to commit their front-line worker to the action learning set due to restructuring and redundancy planning. In addition, the frequent changeover of staff impacted on the management and evaluation of grants.

What they told us Partners described how they have to be mindful of the commissioning environment they work in.

Our sector seems conditioned to accept how brutal and cut-throat the working environment is.

Partners describe how they feel they have had to accept that they are dispensable and disposable; they do not feel valued and have to manage increasing workloads in chaotic funding environments.

The current climate has resulted in us having a lack of funding, resulting in workers having reduced hours, so it is difficult to commit to any additional work.

The voluntary sector is a volatile professional environment at the best of times: people may be asked to leave at short notice, with no opportunity for handover and no-one to take over the tail-end of a project. Contracts for staff are reviewed every six months. No one feels secure and this also impacts on client security and continuity of relationships. Partners stated that they feel that there are too many voluntary sector organisations in Cornwall, so the primary goal for organisations is survival.

Barriers to effective workingOutcomes set by the commissioners do not provide the sector with the opportunity to offer the continuity necessary to support clients. Providers are expected to end relationships with the client once commissioned outcomes are met, despite the client remaining vulnerable and in need. (Film: Konnect Cornwall)

Voluntary sector providers describe their experience of outcomes and targets set by commissioners as barriers to effective practice. They are counterintuitive to the client’s well being. Once outcomes are met, services are expected to withdraw, whether or not it is in the interests of the clients/families. Services have withdrawn from vulnerable clients because outcomes have been met or commissioning cycles changed. Services are then left struggling to identify funding from a variety of sources in order to offer continuity and/or staff are made redundant and continue to offer support in a voluntary capacity.

The partners agreed that commissioners were not receiving a transparent evaluation of commissioned projects:

The sector described how they feel that if you challenge commissioners and offer true feedback you are considered a pariah.

If the voluntary sector are so worried about raising issues with commissioners, then commissioners are not receiving transparent feedback. This is worrying.

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Further informationCash grantsThe survey for this report was collected approximately 3–5 months after the voluntary organisations received the grant for individual client or group activity. We therefore cannot comment on the sustainability of progress made.

• Undertake further engagement to assess the long-term outcomes for clients who have received cash grants.

• Further explore what conditions need to exist alongside the cash grants for them to have the most impact.

• Map and assess the availability and flexibility of other local grant processes, the statutory authority crisis award scheme; and the impact of these on client and voluntary sector partner experience.

• Explore the impact of benefit sanctions and universal credit on those who experience severe and multiple disadvantage.

Action learning setDevelop this new, action learning partnership approach to encourage transparent discussion and feedback and enable effective practice.

A space to understand what effective practice is telling then about how systems should operate. Learning needs to circulate between commissioners, service providers and service users in such a way that can disrupt the old model of top-down commissioning.

EngagementA broader exercise across the voluntary and community sector to deepen the understanding of experiences from front line workers and commissioners

• ‘Pain of commissioners’ – little has been sought on the challenges facing commissioners and policy makers, engagement is recommended to understand this more full.

• Engagement to gather the experience of front-line workers relating specifically to people who live in Cornwall and experience severe and multiple disadvantage. The engagement will focus on pathways of support, the interface between statutory and voluntary sector provision, barriers to working and experiences of current commissioning frameworks.

• Development of a work plan for further engagement with women with complex needs and young people in transition.

Further information:Findings from this programme and evaluation will be fully shared and discussed with commissioners in Cornwall in order to fully meet the objectives of the Promoting Change project and the expected benefits to workers and partner organisations. Further insights from the data gathered can be read in more detail by following the links below:

• The clients: characteristics, experiences, environment• Women with complex needs• Young people in transition• The grants: process, impact, outcomes and lessons learnt• Action learning set: impact, learning and process• Commissioning and influencing• Suggested areas for future exploration• Evaluation approach See all the Cornwall Promoting Change Project films on YouTube.

Produced in partnership with: