working together for wellbeing
TRANSCRIPT
a Working Together for Wellbeing
Working Together for WellbeingThe report of the Northern Ireland Embedding Wellbeing in Local Government ProgrammeFull Report • September 2021
Pippa Coutts, Hannah Ormston and Jennifer Wallace (Carnegie UK) with Majella McCloskey, Anne McMurray and Melanie Stone (Centre for Effective Services), Colm Bradley and Louise O’Kane (Community Places) and Brendan Murtagh (Queen’s University Belfast)
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Contentsa. Acknowledgements 3
b. ListofFigures 4
c. ListofTables 4
d. ListofBoxes 4
e. Glossary 5
f. Abbreviations 6
1. Background 71.1 Approach 81.2 AdvisoryGroup 91.3 ApplicationProcess 101.4 Activities 11
2. WellbeinginPolicy:AnOverview 142.1 AGlobalShiftfromGDPtoWellbeing 142.2 APublicServiceShiftfromTargetstoOutcomes 162.3 InternationalLearning 192.4 WellbeingandCommunityPlanninginNorthernIreland 22
3. IntroducingourProjectPartners 253.1 ArmaghCity,BanbridgeandCraigavonBoroughCouncil 253.2 DerryCityandStrabaneDistrictCouncil 273.3 Lisburn&CastlereaghCityCouncil 29
4. WhatweLearntaboutCo-production 324.1 Lesson1:BuildingtheEnvironmentforCo-production 324.2 Lesson2:MakingEngagementWorkinPractice 344.3 Lesson3:InclusiveStructuresandtheCo-productionChain 364.4 Lesson4:Co-producingResourcesandtheImportanceofBudgets 384.5 Lesson5:MakingOutcomesReal 404.6 Lesson6:SupportingSoftandFormalRelationships 424.7 EnablingaNewApproachtoCo-production 43
ISBN978-1-912908-73-8
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5. WhatweLearntaboutSharedLeadership 445.1 TheCESSharedLeadershipProgrammeApproach 445.2 DevelopmentofStrategicIndicatorsontheSuccessofSharedLeadership 505.3 RoleofandRelationshipswithCentralGovernment 525.4 RelationshipswithinCPPs 535.5 RelationshipsacrossCPPs 545.6 KeyLearningandActionsforSharedLeadership 55
6. WhatweLearntfromPeer-to-PeerLearning 566.1 TheUseofDataandEvidence 566.2 StatementsofProgress 586.3 WorkingwithCommunities 59
7. WhatNextforCommunityPlanninginNorthernIreland? 607.1 CoreFunding 607.2 LocalGovernmentPowersandResponsibilities 617.3 BuildingRelationshipsbetweenCentralandLocalGovernment 627.4 PooledBudgets 637.5 BuildingRelationshipswiththeCommunityandVoluntarySector 647.6 BuildingRelationshipswithCitizens 657.7 ImprovingLeadershipinEvidence 667.8 SpacetoReflectandLearn 67
8. WhatNextforWellbeinginNorthernIreland? 688.1 Re-committotheWellbeingApproach 698.2 HoldaCitizens’AssemblyonCollectiveWellbeinginaPost-COVID-19Society 708.3 LegislatetoProtecttheWellbeingofCurrentandFutureGenerations 718.4 LegislateforaDutytoCo-operate 728.5 BuildaMulti-sectoralLeadershipCommunitytoDeepenWellbeingPractice 73
9. Endnotes–ReflectionsfromtheCarnegieUKTeam 74
10. Appendix–evaluation 7510.1 TheOutcomeMap 7510.2EvaluationSurveybyCESonSharedLeadershipProgramme 7510.3EvaluationofWiderActivitybyStratagem 78
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a. AcknowledgementsTheEmbeddingWellbeinginNorthernIrelandprogrammeinvolvedaverylargenumberofpeople.CarnegieUKwouldliketoacknowledgethesupportwereceivedfromfriendsandcolleaguesacrosstheUK,Irelandandinternationallyindevelopinganddeliveringthisprogramme.
WeareindebtedtoourAdvisoryGroup,ablychairedandguidedbyAideenMcGinley,whoallvoluntarilygavetheirtimeandconsiderableexpertisetotheprogramme.
Thepeoplewhogavethemosttotheprogrammewereofcoursetheleadofficersfromthethreecouncils,whosesupportforcommunityplanningandcommitmenttopublicservicewasdemonstrablethroughout:
• CatherineMcWhirter,Lisburn&CastlereaghCityCouncil• JennieDunlop,Armagh,BanbridgeandCraigavonDistrictCouncil• RachaelCraigandColmDoherty,DerryCityandStrabaneCountyCouncil.
Thewritersofthisreporthopewehavedonesomejusticetothedepthofworkyouhavecarriedoutunderthebannerofthisprogramme.
WewouldalsoliketoacknowledgetheworkofLaurenPennycook,whoactedasprogrammemanagerforthemajorityoftheproject,andAlisonMansonwhoprovidedhighqualityandcalmcorporatesupportthroughout.
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b. List of FiguresFigure1:Cornerstonesofwellbeing 17Figure2:TheWellbeingGoalsforWales 20Figure3:ThethreeProjectPartners 25Figure4:ABCConnected:OurPlanonaPage 26Figure5:PrioritiesforCo-productioninNorthernIreland 33Figure6:ABCCommunityPlanningPartnership 36Figure7:Tak£500–ABC’sParticipatoryBudgetingScheme 38Figure8:LCCCCommunityPlan 40Figure9:LisburnSouthDEAPlaceStandardAssessment 41Figure10:RevisedSharedLeadershipProgramme 46Figure11:RelationshipbasedoutcomeswithinandacrossCPPs 55
c. List of TablesTable1:AdvisoryGroup 9Table2:EmbeddingWellbeinginNorthernIrelandCoreActivities 11Table3:IssuesRaisedbyCommunityPlanningStakeholdersintheGallagherReport 24Table4:Lisburn&Castlereagh’sFiveOutcomes 30Table5:RevisedSharedLeadershipProgramme 47Table6:AverageScores–StrategicIndicatorsofCommunityPlanning(rankedbychange) 51
d. List of BoxesBox1:CarnegieUKDefinitionofCollectiveWellbeing 7Box2:InternationallySignificantWellbeingInitiatives 15Box3:Implementingawholeofgovernmentapproach 18Box4:NewZealand’sApproachtoWellbeing 21Box5:SixLessonsfromtheProgrammeofWork 32Box6:TheGuidetoApplyingCo-productioninCommunityPlanning 35Bex7:ABC:SharedLeadershipinPractice 48Box8:NaturalCapitalAccount:DerryCityandStrabaneDistrictCouncil 57
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Co-productionmeansbuildingontheassetsofcommunitiesofplaceandinteresttodeliverbetterwellbeingoutcomesforallbysharingresponsibilitiesandpowerequallybetweenserviceusersandthosewhoadvocateontheirbehalf,andserviceprovidersacrossallsectors.
Commissioningistheprocessthroughwhicharangeofpublicservicesareprocured,primarilyfromtheprivate,socialenterprise,voluntaryorcommunitysectors.
Acommunity of practiceisagroupofpeoplewhoworktogethertoimproveknowledgeandskillsthroughinteractionandlearningthatimprovesservicesandprogrammedeliveryandfindssolutionstocomplexpolicyandsocialchallenges.
Community planningisanintegratedstrategythatbringstogetherthepublic,private,voluntaryandcommunitysectors,resources,policiesandprogrammes.
Enabling environmentmeansputtinginplacethelegislation,policy,structuresandresourcesthatsupportco-productionandcommunityengagement.
Engagementisaboutgoingbeyondparticipationtoinvolvecommunitiesinaninteractiveandrelationalprocessthatgivesthemameaningfulsayinthedesignanddevelopmentofpoliciesandprogrammesaffectingthem,theirareaorsector.
Governancereferstothewayinwhichdecision-makingstructuresworkoutsideformalgovernmentorganisationstoenableawiderrangeofcivicactors,theprivatesectorandspecialintereststomakeandtakedecisionsaffectinganareaorproblem.
Locality plansarearea-basedstrategiesthatcoordinateinvestmentinresponsetotheneedsandprioritiesoflocalcommunities.
Organisationalsilosrefertothepracticeofcentralandlocalgovernmentwhichoftenworkswithinstructural,policyorprofessionaldisciplines.
OutcomeplanninginvolvessettingclearindicatorsabouthowthelivesofpeoplelivinginaCouncilareawillchangeoverthelifeofaCommunityPlan.Bysettingclear,measurableandtimeboundoutcomeindicators,thebeneficiariesofpoliciesandprogrammescanseewhetherandhowtheirliveshavechanged.
Participatory Budgetingisastructuredprocessofdecision-making,inwhichlocalpeoplesetpriorities,takedecisionsandallocatepublic,privateorcharitablefunding.
Prevention aimstoanticipateandrespondtopolicyissuesbeforetheyemergeasmoredifficultandcomplexproblems.
Shared leadership is whereleadershipisdistributedamongstasetofindividualsinsteadofbeingcentralisedinthehandsofasingleindividualwhoactsintheroleofleader
Wellbeing iswheneveryoneinsocietyhaswhattheyneedtolivewellnowandinthefuture.AtCarnegieUKwebelievethatcollectivewellbeinghappenswhensocial,economic,environmentalanddemocraticwellbeingoutcomesareseenasbeingequallyimportantandaregivenequalweight.
Whole of government isanover-archingtermforresponsestoincreasedfragmentationofpublicservicesandawishtoincreaseintegration,co-ordinationandcapacity.
e. Glossary
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f. Abbreviations
CES CentreforEffectiveServices
CPP CommunityPlanningPartnership
CVS CommunityandVoluntarySector
ABC ArmaghCity,BanbridgeandCraigavonBoroughCouncil
NISRA NorthernIrelandStatisticsandResearchAgency
PSNI PoliceServiceofNorthernIreland
DCSDC DerryCityandStrabaneDistrictCouncil
ODP OutcomeDeliveryPartnership
LCCC Lisburn&CastlereaghCityCouncil
SCPP StrategicCommunityPlanningPartnership
TAP ThemedActionPlanning
IAP2 InternationalAssociationofPublicParticipation
DEA DistrictElectoralArea
NILGA NorthernIrelandLocalGovernmentAssociation
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Overthepasttenyears,knowledgeofwellbeing–anditsapplicationtopolicyandpractice–hasincreasedsubstantially.Wehavebeenproudtobepartofthisinternationalmovementtounderstandtheconceptofwellbeingitself,learningwhatitmeanstopeopleandtogovernments(seeBox1).
WeexperienceeachoftheSEEDdomainsofcollectivewellbeingindifferentaspectsofourlives:ourownpersonalwellbeing–ourqualityoflifeandourgeneralhappiness;thewellbeingofthecommunitywearepartof–whetherwe
havetheassetsandrelationshipsinplacetolivewelllocally;andasasociety–whetherweallhavewhatweallneedtolivewelltogetherandflourish(seeBox1).
OurgeographicalremitalsoprovidesuswithauniqueroleinworkingacrossthefourjurisdictionsoftheUKandintheRepublicofIreland.Inourrecenthistorywehaveworkedtosharepolicyandpracticelearningacrossthesejurisdictionsandtobuildrelationshipsbetweenthoseinnovatingtoimprovewellbeingindifferentfieldsintheirowncountriesandcommunities.
1.Background
CarnegieUKistheUK’sleadingwellbeingfoundationwitha100-yearhistoryofinspiring,supportingandpromotingwellbeingthroughphilanthropy.Weuseourexpertisetoeffectchangethatimprovespeople’slivesandworkinpartnershipwithindividualsandorganisationsfromallsectorstoadvancetheideas,evidenceandpracticethatmakeadifferencetowellbeing.
Box1:CarnegieUKDefinitionofCollectiveWellbeingWellbeingmeanseveryonehavingwhattheyneedtolivewellnowandinthefuture.Itisamulti-dimensionalapproachtosocialprogressthatgives equal weight toSocial, Economic,EnvironmentalandDemocraticoutcomes.
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OneexampleofthiswastakingourmodelofasuccessfulroundtableonwellbeinginScotland1andapplyingittotheuniqueconstitutionofNorthernIreland.TheCarnegieRoundtableonMeasuringWellbeinginNorthernIrelandreportedin2015andinfluencedtheoutcomes-basedapproachandfocusonwellbeinginthedraftProgrammeforGovernment2.
Aroundthesametime,2015,thereformoflocalgovernmentinNorthernIrelandgavethe11newlycreatedlocalauthoritiestheresponsibilityforleadingcommunityplanningprocessesfortheirrespectivedistricts.CommunityPlansidentifyprioritiesforimproving the social, economic and environmental wellbeing oflocaldistrictsandtheirresidents,communitycohesionandlocalqualityoflife,beyondlocalgovernmentelectoralcyclesintothelong-term.TheCommunityPlanshavethepotentialtoactaslocalwellbeingframeworksinwhichlocalauthoritiesandtheirpartnersasCommunityPlanningPartnershipsmusttakeanoutcomes-basedapproachtotheirwork.
IndependentanalysiscommissionedbyCarnegieUKconfirmedthatalloftheCommunityPlans,tovaryingdegrees,adoptedboththelanguageandsubstanceofthewellbeingagendaandtheoutcomesmodel.However,localgovernmentwaschargedwiththeresponsibilityfordevelopingCommunityPlanswithlittlefinancialorothersupport.
AsthepoliticalsituationinNorthernIrelanddestabilisedin2017,CarnegieUKtookthedecisiontoshiftourfocusfromtheNorthernIrelandExecutiveandpublicbodiestolocalgovernment.ThiswasastrategicdecisionthattheTrusteesofCarnegieUKmadetoprovidewhatsupportwecouldtolocaldemocracyandcommunityplanningtoimprovewellbeingintheregion.
1 CarnegieUKTrust(2011)More Than GDP: Measuring What Matters.Availableonlineathttps://www.carnegieuktrust.org.uk/publications/more-than-gdp-measuring-what-matters/
2 Doran,P.,Woods,JandWallace,J.(2015)Towards a Wellbeing Framework for Northern Ireland. Availableonlineathttps://www.carnegieuktrust.org.uk/publications/towards-a-wellbeing-framework-short-report/
1.1 ApproachCarnegieUK’sEmbeddingWellbeinginNorthernIrelandprojectprovidedsignificantfinancialandin-kindsupporttotheCommunityPlanningPartnershipsworkinginthefollowinglocalauthorityareas:
• ArmaghCity,BanbridgeandCraigavonBoroughCouncil
• DerryCityandStrabaneDistrictCouncil• Lisburn&CastlereaghCityCouncil.
TheprojectsupportedtheCommunityPlanningPartnershipstoovercomechallengesinimplementingtheirCommunityPlanwhichtheythemselvesidentifiedaspriorities.Aspartofthisthree-yearprogramme,apeer-to-peersupportmodelwasdevelopedtoallowtheCommunityPlanningPartnershipstolearnfromeachotherandfrominternationalbestpracticeinaddressingsimilarchallenges,andtosharethiswiththeotherCommunityPlanningPartnerships.
Theoverallapproachwastoco-designtheprogrammewiththethreelocalpartners.Intheirapplicationsallcouncilsprovidedinformationonstrengthsandchallenges,whichwerecollatedintopackagesofsupport.ThekeyofficersfromeachCouncilworkedtogethertodevelopapackagethatmaximisedtheimpactofthefundingandsupport.OurpartnerStratagemcarriedoutfeedbackinterviewsonourbehalfthroughouttheprogrammetohelpustailortheprogrammetotheneedsofthepartners.AreportofthishasbeenprovidedinAppendix10.2.
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1.2AdvisoryGroupAttheoutset,anAdvisoryGroupwasestablishedthatincludesrepresentativesfromtheNorthernIrelandExecutive,theNorthernIrelandStatisticsandResearchAgency,civilsociety,andkeystakeholdersfromthewellbeingandoutcomescommunitybasedoutsideNorthernIreland.
TheroleoftheAdvisoryGroupwasprimarilytosupporttheprojectdesignanddelivery,
includingtheapplicationprocessandthedevelopmentofthepackagesofsupportfortheprojectpartners;toprovideeffectivehorizonscanningforissuesrelatingtolocalgovernmentinNorthernIrelandandadviseonthelikelyimpactoftheseontheproject;andtosupportthedisseminationofprojectlearningtootherCommunityPlanningPartnershipsinNorthernIrelandandtheircounterpartsinotherpartsoftheUKandIreland.TheAdvisoryGroupmembersaresetoutinTable1.
Table1:AdvisoryGroup
Name Organisation
AideenMcGinley(Chair) Trustee,CarnegieUK
ColmBradley Director,CommunityPlaces
PaulBraithwaite ProgrammeLeader,BuildingChangeTrust
SiobhanCarey/TraceyPower
ChiefExecutive,NorthernIrelandStatisticsAgency
NicolaCreagh DepartmentforCommunities,NorthernIrelandExecutive(Oct 2018 to Nov 2020)
KieranDonnelly ComptrollerandAuditGeneral,NorthernIrelandAuditOffice
KatrinaGodfrey DirectoroftheProgrammeforGovernmentandExecutiveSupport,NorthernIrelandExecutive(until September 2018)
SorchaHassay DepartmentforCommunities(from March 2021)
NancyHey Director,WhatWorksWellbeing
HelenJohnston SeniorPolicyAnalyst,NationalEconomicandSocialCouncil
BrendaKent Independentconsultant
DerekMcCallan ChiefExecutive,NorthernIrelandLocalGovernmentAssociation
MajellaMcCloskey SeniorManager,CentreforEffectiveServices
PamelaMcCreedy LocalGovernmentAuditor,NorthernIrelandAuditOffice(until April 2021)
JoanneMcDowell NorthernIrelandDirector,BigLotteryFundNorthernIreland
DawnSnape AssistantDirector,Wellbeing,Inequalities,SustainabilityandEnvironment(WISE)Division,OfficeforNationalStatistics
JenniferWallace HeadofPolicy,CarnegieUK
LouiseWarde-Hunter DeputySecretary,DepartmentforCommunities,NorthernIrelandExecutive(until February 2020)
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1.3 ApplicationProcessTheCommunityPlanningPartnershipswereinvitedtosubmitanExpressionofInteresttoparticipateintheprogramme.Aspartoftheapplicationprocess,thelocalauthoritieswereaskedtocommittotheprinciplesofopenness,partnershipworking,sharedlearningandparticipation.ApplicantswererequiredtodemonstratesupportfromthelocalauthorityChiefExecutiveandChairoftheCommunityPlanningPartnershipfortheirapplication.ExpressionsofInterestwerereceivedfromall11CommunityPlanningPartnerships.
TheAdvisoryGroupwasconvenedtomakeadecisionontheprojectparticipants.TheAdvisoryGroupselectedprojectparticipantsbasedonthefollowingcriteria:
• DemonstrableawarenessandunderstandingoftheissuesaffectingthecommunitiesandresidentscoveredbytheCommunityPlan
• Demonstrableawareness,understandingandbalanceofprioritiesacrossthedifferentdomainsofwellbeinginthedevelopmentandimplementationoftheCommunityPlantodate
• EvidenceofeffortstoaligntheCommunityPlanwiththeoutcomesframeworkofthedraftProgrammeforGovernment
• DemonstrablecitizenandcommunityengagementinthedevelopmentoftheCommunityPlan,andwell-developedplanstocontinuetoengagecitizensandcommunitiesandtheCommunitySectorinthedeliveryoftheCommunityPlan
• EvidenceofpartnershipworkinginthedeliveryoftheCommunityPlan,withclearexamplesofdifferentpartnerstakingtheleadindeliveryofdifferentaspectsoftheCommunityPlan
• DemonstrablecommitmenttosharinglearningwithotherlocalauthoritiesinNorthernIrelandandcounterpartsacrosstheUKandIreland.
StudyvisitstoeachofthethreesuccessfulareaswereundertakentoidentifykeyissuesfacingeachCommunityPlanningPartnershipandthestrengthsandchallengesinimplementingtheirCommunityPlantodate.
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1.4 ActivitiesTable2:EmbeddingWellbeinginNorthernIrelandCoreActivities
June 2018
Support for three Community Planning Partnerships announced AfteranopenExpressionofInterestprocess,thesuccessfulprojectparticipantswereannounced:• ArmaghCity,BanbridgeandCraigavonBoroughCouncil;• DerryCityandStrabaneDistrictCouncil;and• Lisburn&CastlereaghCityCouncil.
September 2018
LaunchofPeer-SupportNetworkTheEmbeddingWellbeingSupportNetworkwaslaunched.ThiswasanewvirtualnetworkforallCommunityPlanningPartnershipsinNorthernIrelandandexternalstakeholderswithexpertiseandaninterestinlocalwellbeing,offeringthemtheopportunitytosharelearning.
October2018
StudyTrip–NewYorkThestudyvisitconsistedofaninternationalseminaronwellbeinginNorthernIreland3,alongsideastakeholderengagementday4withthosewhowereinvolvedinmeasuringlocalwellbeingoutcomesinNorthAmerica.
November 2018
Firstpeer-to-peereventwasheldwithafocusontheuseofdataandevidenceinCommunityPlanning.
February 2019
DataandevidenceforelectedmembersCarnegieUKsupportedNILGAtopilotatrainingsessionforelectedmembersontheuseofdataandevidenceinCommunityPlanning.
March2019 StudyTrip–WalesRepresentativesofthethreeCommunityPlanningPartnershipsprojectparticipantswereprovidedwiththeopportunitytoengagewithWelshpolicymakersandpoliticians,andtofindouthowtheWellbeingofFutureGenerations(Wales)Act2015hasenabledWalestoimprovethewellbeingofcitizens5.
June 2019
Community Places Commissioned CommissionedCommunityPlaces6tosupporttheprojectparticipantsonintegratingco-productionintopublicservicesandofferingcitizensadifferent–moreinclusive,enabling–role,whichutilisestheirstrengthsandcapabilities.
June 2019
Centre for Effective Services Commissioned CommissionedtheCentreforEffectiveServices7toprovidesupportonhowtoshareleadershipwithin,andoutsideof,partnershipstructures–todiffusepoweranddecision-makingabilities;tomaximisecollectiveresources;andtoimproveoutcomeswhicharegreaterthanthesumofthepartners’parts.
3 CarnegieCouncilforEthicsinInternationalAffairs(2018)International Seminar on Wellbeing in Northern Ireland(video)Availableonlineathttps://www.carnegiecouncil.org/programs/archive/wellbeing-northern-ireland
4 CarnegieUK(2018)From NI to NYCAvailableonlineathttps://www.carnegieuktrust.org.uk/blog/from-ni-to-nyc/5 CarnegieUK/BevanFoundation(2019)Study Trip to WalesAvailableonlineathttps://www.carnegieuktrust.org.uk/
publications/study-visit-to-wales/6 CommunityPlaceshttps://www.communityplaces.info/7 CentreforEffectiveServiceshttps://www.effectiveservices.org/
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June 2019
Peer-to-peerHackathonCarnegieUKhostedahackathontosupporttheCommunityPlanningnetworkinthedevelopmentofeffectivevisualisationandcommunicationofthedataintheirStatementsofProgress.TheStatementsofProgressisareportprovidedtotheDepartmentforCommunitiesandthePartnerships’owncommunitiesontheprogressmadeontheimplementationoftheirCommunityPlans.
December2019
Peer-to-peereventonCollectiveResourcingThiseventwasanopportunitytosharelearning,andtocelebratethepublicationofthePartnerships’firstStatementsofProgress.
January 2020
NewDecade,NewApproachwaspublishedandincludedarenewedopportunitytoimprovewellbeinginNorthernIreland8.ACarnegieUKinfographicoutlinesourprioritiesforthenextstepsfortheExecutive,ontheroleoflegislation,Ministerialoversight,andaligningwithglobalpolicies,inordertoimprovethewellbeingofcurrentandfuturegenerations.
March 2020
MajordisruptionduetoCOVID-19pandemicwithprojectactivitymovingonlinefortheremainderoftheprogramme.
September 2020
Peer-to-peerlearningevent:workingwiththecommunitypostCOVID-19DelegatesfromacrossNorthernIrelandhadtheopportunitytoshareexperiencesofemergencyresponsestothepandemicandheardfromlocalgovernmentandvoluntaryorganisationsacrosstheUK.
May2021 EmbeddingaWellbeingFrameworkinNorthernIreland:AcontributionfromCarnegieUK9 waspublishedinresponsetotheNorthernIrelandExecutive’sProgrammeforGovernmentConsultation.Inthispaper,wecalledontheExecutivetogofurtherandputthewellbeingoutcomesapproachonastatutoryfootingtoensuretheirpermanence.
September 2021
Publicationofthefinalprojectreportsbringingtogetherthekeyfindingsfromthecourseoftheproject,andrecommendationsfortheNorthernIrelandExecutiveandCommunityPlanningPartnerships.
8 CarnegieUK(2020)New Decade, New Approach infographic. Availableonlineathttps://www.carnegieuktrust.org.uk/publications/new-decade-new-approach-and-a-renewed-opportunity-to-improve-wellbeing-in-northern-ireland/
9 Ormston,H.,Pennycook,L.andWallace,J.(2021)Embedding Wellbeing in Northern Ireland: A contribution from Carnegie UK Trust to inform discussions around the Programme for Government Consultation. Availableonlineathttps://www.carnegieuktrust.org.uk/publications/embedding-a-wellbeing-framework-in-northern-ireland-a-contribution-from-carnegie-uk-trust-to-inform-discussions-around-the-programme-for-government-consultation/
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Thesupportwasco-designedwiththeprojectparticipantstoensurethatitisbothstrategicforthedecision-makersintheCommunityPlanningPartnershipsandrelevanttothepractitionersworkingtodeliverprojectsdesignedtoimprovewellbeingincommunities.
AkeyaspectofthemodelusedbyCarnegieUKforthisprojecthasbeentheongoingengagementwithcivilservants,localgovernmentofficers,non-governmentalorganisationsandpoliticalparties.Asathree-yearproject,wewerekeentoensurethattheemergingfindingscouldbeincorporatedintopracticeassoonasfeasible.Fromcross-jurisdictionallearningsymposiumstoworkshops,toolkitsandlearningmodules,wesupportedlocalpolicymakersandpractitionerstoexplorewhatworksasanapproachandintheirlocalareas.
Asadevelopmentprogrammemuchoftheactivityproposedtotakeplacein2020wasexpectedtobeface-to-face.AstheCOVID-19pandemicreachedtheUKandlockdownscommencedinearly2020itwasclearthatwewouldbeunlikelytobeabletomeetinperson.Indiscussionwithalltheprojectpartners,wetookthedecisionnottostoptheprogrammebuttoextendthetimetablesignificantly.Thisallowedourdeliverypartnerstoshifttoonlinewebinarsandmeetingsandcontinueengagingwithlocalgovernmentanditspartnersthroughthisunprecedentedtime.Throughoutthisreport,referencesaremadetotheimpactofthepandemiconlocalgovernmentanditspartners.
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10
2.1 AGlobalShiftfrom GDPtoWellbeing
Thereareanumberofphrasesusedtodescribeinitiativestoimprovemeasurementofsocialprogress:BeyondGDP,sustainabledevelopment,humandevelopment,happiness,wellbeing(orhyphenatedaswell-being).Overtime,themostcommonlyassociatedterminpublicpolicyhasshiftedtowardswellbeing(seeBox2).Theseinitiativesshareacommontarget–toreducetheemphasisonGDPasshorthandfortheprogressofsociety.
Spurredonbythe2007IstanbulDeclarationtherewasanexplosionofBeyondGDPinitiatives.InFebruary2008,PresidentNicolasSarkozyofFranceaskedJosephStiglitz,AmartyaSenandJeanPaulFitoussitoformtheCommissionontheMeasurementofEconomicPerformanceandSocialProgresstoreviewhowstatisticsareusedtomeasureprogressintheeconomyandinsociety.Ithadthefollowingobjectives:toidentifythelimitsofGDPasanindicatorofeconomicperformanceandsocialprogress,includingthe
10 Stiglitz,J.,Sen,A.,andFitoussi,J-P.(2009)Report by the Commission on the Measurement of Economic Performance and Social Progress. Availableonlineatwww.stiglitz-sen-fitoussi.fr
problemswithitsmeasurement;toconsiderwhatadditionalinformationmightberequiredfortheproductionofmorerelevantindicatorsofsocialprogress;toassessthefeasibilityofalternativemeasurementtoolsand;todiscusshowtopresentthestatisticalinformationinanappropriateway(Stiglitz,etal.,2009)11.
TheCommission’s2009reporthasbeenhugelyinfluential.Itbuildsonanincreasingvolumeofacademicandprofessionalliteraturelookingathowtoimprovemeasurementofeconomicperformanceandwidersocialprogress.TheunifyingthemeoftheStiglitz-Sen-Fitoussireportisthatthetimeisripeforourmeasurementsystemtoshiftemphasisfrommeasuringeconomicproductiontomeasuringpeople’swellbeing.
In2011,UNmemberstatesunanimouslyadoptedaresolutionnotingthatGDP“wasnotdesignedtoanddoesnotadequatelyreflectthehappinessandwellbeingofpeopleinacountry”.Theyinsteadinvitedcountries“topursuetheelaborationofadditionalmeasuresthatbettercapturetheimportanceofthepursuitofhappinessandwellbeingindevelopmentwithaviewtoguidingtheirpublicpolicies”.
11 Ibid
2.WellbeinginPolicy: AnOverview
What we measure affects what we do; and if our measurements are flawed, decisions may be distorted. Stiglitz,etal.,200911
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Sincethen,theOECDhasledinternationaleffortstoimprovemeasuresofprogressthroughitsBetterLifeinitiativeandnowthroughtheWISECentre12.Theprogrammeincludesonlineinteractivetoolstocomparewellbeingacrossmemberstatesandguidanceonmeasuringwellbeing.
Untilthispoint,muchofthe‘action’aroundwellbeingwasatanation-statelevel.Asthemovementmatured,moreinterestwasgeneratedatregionallevel.InOctober2014,theOECDreleased How’sLifeinYourRegion? thefirstanalyticalreportonwhichtheirregional
12 CentreonWell-being,Inclusion,SustainabilityandEqualOpportunity(WISE)https://www.oecd.org/wise/
wellbeingtoolisbased13.Itprovidesacommonframeworkformeasuringwellbeinginregions,andguidancetopolicymakersatalllevelsonhowtousewellbeingmetricsforimprovingpolicyresults,basedonlessonsfromregionsthathavebeenusingwellbeingmetricstoimprovetheimpactofpolicy14.Therearenowalsoincreasingnumbersofinitiativesatsecond(federal/devolvedlegislatures)orthirdtiergovernment(municipalities)15.
13 OECD(2011)How’s Life? Measuring WellbeingOECD,Paris14 Coutts,P.andWallace,J(2017)Sharpening our Focus:
Guidance on Wellbeing Frameworks in Cities and Regions CarnegieUKTrust
15 GlobalHappinessCouncil(2018)Global Happiness Policy Report 2018NewYork:SustainableDevelopmentSolutionsNetwork
Box2:InternationallySignificantWellbeingInitiatives
1968 RobertKennedyspeaksofthefailuresofGDPasameasureofsocialprogress
1987 UnitedNationsBrundtlandCommissionreports
1992 UNpublishesfirstHumanDevelopmentIndex
2000 MillenniumDevelopmentGoalsagreedbyUN
2004 1stOECDWorldForumonStatistics,KnowledgeandPolicyheldinPalermo,Italy
2007 IstanbulDeclarationonMeasuringSocialProgress
2009 PublicationofStiglitz-Sen-FitoussireportonMeasuringEconomicPerformanceandSocialProgress
2011 OECDlaunchesBetterLifeinitiative
2012 UNpublishesWell-beingandHappiness:DefiningaNewEconomicParadigm
2012 UNresolutiononInternationalDayofHappiness
2014 SocialProgressIndexlaunched
2014 How’sLifeinYourRegion?launched
2018 GroupofWellbeingEconomyGovernmentslaunched
2018 GlobalDialogueforHappinessheldattheWorldGovernmentSummit
2019 TheNewZealandTreasurylaunchesfirstWellbeingBudget
2019 LordJohnBirdlaunchesbidtocreatenewUKWellbeingofFutureGenerationsBill
2020 CarnegieUKpublishesfirstcollectivewellbeingindexforEngland
2021 TheRepublicofIrelandGovernmentpublisheditsfirstwellbeingframework
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2.2APublicServiceShiftfromTargetstoOutcomes
AstheBeyondGDPmovementwasbeginningtochangeitslanguagetowardswellbeing,aparalleldevelopmentinsocialpolicywasalsonudginggovernmentsinthesamedirection.Bythemid-2000s,theliteraturewasshiftingawayfromsupportforNewPublicManagementtowardswholeofgovernmentapproachestopublicpolicy.
NewPublicManagementbeganduringtheearly1990sbutrosetodominanceintheUKduringtheNewLabouryearsof1997-2010.Itselfareactiontotraditionalpublicadministration,akeyaspectofNewPublicManagementwasitsfocusonmeasurement(theotherelementsincludedmanagementandmarkets).OthercountriessuchasNewZealand,Canada,DenmarkandtheNetherlandsalsousedthisapproachextensively16.
Duringthistime,theapproachoftheUKGovernmentwastosettargetstobereached,forexampleimprovingwaiting-listtimesorincreasingtheproportionofyoungpeoplegoingintohighereducation,butincreasinglyitwascriticisedfor‘hittingthetargetbutmissingthepoint’.AfurthersetofproblemswithNewPublicManagementwasitstendencytowardsfragmentation.Departmentalsilosandsilomentalityareendemicacrosspublicservices,withmanypolicyinitiativesfocusingsolelyongettingcivilservantstoplantogethermoreeffectively.Bytheearly2000sandtheestablishmentofthedevolvedadministrations,NewPublicManagementwasseentohavereachedthelimitsofitseffectivenessandpublicserviceswerebeginningtodisplaybehaviourswhichwerecreatingmistrustwithinthepopulation17.
16 Colgan,etal.,(2016)A Primer on Implementing Whole of GovernmentDublin:CentreforEffectiveServices
17 OECD(2017)Trust and Public Policy: How Better Governance Can Help Rebuild Public TrustParis:OECD
Anewapproachwasrequiredandgovernmentsbegantoexperimentwithinnovativewaysofworking.In2020,CarnegieUKpublishedananalysisofCommissionsandInquiries18thatidentifiedsixareasofcrosscuttingrecommendations.Thesearethecornerstones of a wellbeing approachtogovernment:
1. Prevention:Awellbeingapproachrequiresproblemstobeidentifiedandrespondedtobeforetheybecometooentrenchedanddifficulttoresolveormitigate.Thelostopportunitiesofinterveningtoolateareoftenrecognisedascostlyfortoday’spublicpurse.Butmorefundamentally,theyarecostlyforoverallwellbeing.
2. Participatorydemocracy:Theanalysisdemonstratesthatsocialprogresscannotbeunderstoodwithoutengagingpeopleaboutwhatmatterstothem,andthatwellbeingcannotbe‘doneto’people.
3. Equalities:Inequalityandexclusionareareasofsignificantwellbeingchallengeformanycountriesandregions.Theyarenotalwaysvisibleinthestatisticswhichmeasurepopulationaverages.
4. Localism:Therearerepeatedcallstocreateanewrelationshipbetweencentral,regionalandlocalgovernment,basedonasharedunderstandingoftheirobjectivesandallowingforlocaltailoringtosuittheneedsandprioritiesofindividualcommunities.
5. Integrationofservices:Governmentsareincreasinglyrealisingthatthesolutionstowickedandcomplexpolicyproblemscanonlybefoundbyworkingtogether.Eachpartofthesystem(education,health,housing,andsoon)isdependentontheotherstoachieveitsobjectives.
18 Wallace,J.etal(2020)Gross Domestic Wellbeing (GDWe): An alternative measure of social progress. Availableonlineat https://www.carnegieuktrust.org.uk/publications/gross-domestic-wellbeing-gdwe-an-alternative-measure-of-social-progress/
17 Working Together for Wellbeing
6. Long-termism:Recognisingthatweoperatewithfiniteresources,thereisagrowingacceptanceoftheprinciplethatpolicymakingshouldnotbenefitcurrentgenerationsattheexpenseoffutureones.Althoughtheimplicationsoftheclimateemergencywerenotfullyoradequatelyconsideredinallofthereviews,anumberofexampleshavebeguntoidentifypoliciesandinterventions(onactivetravel,greenspace,thefoodenvironmentandenergyefficiency)thatcouldbothreduceinequalitiesandmitigatetheeffectsofclimatebreakdown;indoingsotheydemonstrateambitiontoachievepositiveoutcomesrightacrosstheSEEDdomainsandpreventnegativeconsequencesforgenerationstocome19.
19 Ibid
Takingawellbeingapproachtopublicservicesandgovernancemorewidelyrequiresasignificantshiftinthinkingwithinthecivilservicesandpublicsectorprofessions.ThisisdescribedbytheCentreforEffectiveServicesasawholeofgovernmentapproach(seeBox3).Wholeofgovernmentapproachesgofurtherthanjoined-uporinteragencyworking;theyensurethatallstakeholdershavethesamevisionandstrategicpriorities.
Localism
Prevention
Equalities
Participatory democracy
Integration of services
Long-termism
Cornerstones of Wellbeing
Figure1:Cornerstonesofwellbeing
Box3:Implementingawholeofgovernmentapproach(MajellaMcCloskeyandAnneMcMurray,CentreforEffectiveServices)
Awholeofgovernmentapproachaimstointegratetheinvolvementofstakeholdersacrossnetworksatnationalandlocallevelinsupportofachievingbestoutcomes.
For the successful involvement of a range of agencies in [policy] implementation and service delivery, it is paramount that those agencies are involved in the development of the policy in the first place20
Akeydimensionofchangefromthisperspectiveisanunderstandingofandattentiontoculturalfactorssuchasnorms,valuesandbeliefsinasystem.AccordingtoFixen,etal.,“theessenceofimplementationisbehaviourchange”whetherinrelationtopolicyorpractice21.
Theliteratureonpolicyimplementationsuggeststhatkeysuccessfactorsinpolicydevelopmentandimplementationincludeaclearevidencebasetosupportthepolicy,activeconsiderationoftheimplementationchallenges,andaTheoryofChangethatmapsthecausalpathwayfromwherethingsaretowheretheyneedtobe22.
Implementationapproachesgenerallyidentifykey‘drivers’orenablersformakingchange:
• Structures:Asetofpracticalstructuresorarrangementsareneededtomakecommunityplanninghappen,shapedbyitspurpose,andforthelifetimeoftheinitiative.Communityplanningwhichisintendedtobringaboutsignificantlong-termchangemayneedmorestronglyembeddedsystems,includinglegislation,organisationalredesign,newprocessesandnewcompetencies23.
20 Metcalf,A.(2011).PresentationtotheCentreforDefenceandStrategicStudies,Canberra,November2011.CitedinPublic Sector Governance in Australia,byMeredithEdwardsetal.,ANUPress,2012,JSTOR,Availableonlineatwww.jstor.org/stable/j.ctt24h92b.19.
21 Fixsen,D.L.,Naoom,S.F.,Blasé,K.A.,andFriedman,R.M.(2005).Implementationresearch:asynthesisoftheliterature.Availableonlineathttp://nirn.fpg.unc.edu/sites/nirn.fpg.unc.edu/files/resources/NIRN-MonographFull-01-2005.pdf
22 Williams,P.(2002).Thecompetentboundaryspanner.Publicadministration,80(1),103-124.
23 deBrí,F.,andBannister,F.(2010).Whole of Government: Beyond Silos and Toward ‘Wicked Problems’. Proceedings of the 10th European Conference on E-Government:NationalCenterforTaxationStudiesUniversityofLimerick,Ireland17-18June2010
• Work Processes:Communityplanningdependsonthealignmentofcoreworkprocessessothatthesearesupportiveofawholeofgovernmentapproach.Keyprocessesforalignmentincludeaccountabilitysystems,budgetsandinformationmanagement,andaccordingtoa2006OECDreport24,themanagementofcriticalgapsintheseareas.
• Political and Administrative Leadership:Sharedleadershipisseenasaspecialisedkindofleadershipthatenablespeopletomanagethecomplexinstitutionalarrangementsthatwholeofgovernmentworkrequires.Leadershiphastofocusonbuildingandsustainingrelationships,managingcomplexityandinterdependence,andmanagingmultipleandconflictingaccountabilities25.
• Culture and Capacities:Thekeypersonneloperatingininter-organisationalsettingsare‘boundaryspanners’.Thenetworkingskillsoftheeffectiveboundaryspannerincludecapacitytocultivateinter-personalrelationships,communication,politicalskills,andanappreciationoftheinterdependenciesinvolvedinunderstandingandsolvingcomplexproblems.Empathy,reciprocityandtrust,andanabilitytoseetheproblemfromthesocialandvaluesperspectiveofotherstakeholdersarekeycapacities.Collaborationisanotherkeycapacity,andittakesonaspecificmeaningincommunityplanning.
Todothiseffectively,asharedvisionofthetypeofsocietywewishtohaveinthefuture,andinparticularthevisionforthepublicsector,arefundamentalrequirements.Leadershipisseenascriticaltoeffectivepolicyimplementation26.
24 OECD(2006)Whole of Government Approaches to Fragile States.DACGuidelinesandReferenceSeries.ADACReferenceDocument.
25 Fafard,P.(2013)Health in All Meets Horizontal Government.FirstInternationalConferenceonPublicPolicy.Grenoble,France.Availableonlineathttp://www.icpublicpolicy.org/IMG/pdf/panel_61_s1_fafard_final.pdf
26 Ibid
18 Working Together for Wellbeing
19 Working Together for Wellbeing
2.3InternationalLearning
2.3.1 North America
InOctober2018,aspartoftheEmbeddingWellbeinginNorthernIrelandproject’scommitmenttopolicylearning,theprojectparticipantstookpartinastudyvisittoNewYorkandmetwithpolicymakersandpractitionersinvolvedinthedevelopmentandimplementationofthefollowingwellbeingframeworks:
• TheCityofSantaMonicaWellbeingProject27providedvaluablelearningonengagingwithcitizensbeyondtheusualplaces,spaces,andsuspects.
• TheCommunityFoundationsofCanada28,demonstratedthepowerofannualreportingoncommunitywellbeing.
• GrossNationalHappinessUSA29relayedtoourparticipantsthatdataaloneisinsufficient.Dataneedstobeframedandcommunicatedeffectivelyforittobepowerful.
• MeasureofAmerica30,providedvaluablelearningontheneedtohavetheaudienceattheforefrontofplanstocommunicatewellbeingdata.
ThestudytripwastimedtocoincidewithanInternationalSeminaronWellbeinginNorthernIreland–acollaborationbetweenCarnegieUKandtheCarnegieCouncilforEthics31.TheseminarexploredthepoliticalcontextinNorthernIreland;showcasedwiderperspectivesoutsideofcentralandlocalgovernment;identifiedcontactsforpotentialfuturecollaboration;andhosteddiscussionsin
27 SantaMonicaWellbeingProjecthttps://wellbeing.smgov.net/
28 CommunityFoundationsCanadahttps://communityfoundations.ca/vitalsigns/community-vital-signs/
29 GrossNationalHappinesshttp://gnhusa.org/30 MeasureofAmericahttp://www.measureofamerica.org/31 SenatorGeorgeMitchell:InternationalSeminaron
WellbeinginNorthernIreland–YouTube9October2018.Availableonlineathttps://www.youtube.com/watch?v=8cKWrM-PbnQ
aninternationalsetting.However,thedivergencebetweenthepoliticalpartieswasstark,andtheresponsibilitybestowedoncommunityplanningasoneofthefewleversavailabletoimprovewellbeingoutcomesinapoliticalandpolicyvacuumdemonstratedtheexpectationsofandpressureonthePlanstoencompassallpublicservices.
2.3.2 Wales
InMarch2019,asecondstudytripwasmadetoWales.Duringthevisit,thegrouphearddirectlyfromSophieHowe,FutureGenerationsCommissionerforWales.SheopenedherpresentationwithaquotefromaUNspokesperson:
We hope that what Wales is doing today the world will do tomorrow. Action, more than words, is the hope for our current and future generations.
SheexplainedthattheWellbeingandFutureGenerations(Wales)Acthadarisenfroma‘nationalconversation’,TheWalesweWant.TheActwaspassedbytheNationalAssemblyin2015andshebecamethefirstCommissionerin2016.TheActcoversmostpublicbodiesinWales,fromtheWelshGovernmenttolocalauthorities,healthboards,emergencyservicesandenvironmental,sportsandartsorganisations.Whilethechallengeforthemvariesdependingontheirrole,thecoreprincipleisthesame–decisionsmustbe‘futureproofed’toachieveabetterandlastingqualityoflifeforall.
20 Working Together for Wellbeing
Figure2:TheWellbeingGoalsforWales
Therearesevenwellbeinggoals(Figure2).Thesearetobeachievedthroughfivedistinctivewaysofworking:
1. Longterm:balancingshort-termneedswhilesafeguardingtheabilitytomeetlong-termneeds
2. Integration:consideringhowapublicbody’swellbeingobjectivesimpactoneachgoal
3. Involvement:involvingpeoplewithaninterestinwellbeinggoalsandensuringthattheyreflectthediversityofthearea
4. Collaboration:actingincollaborationwithotherpeopleororganisationstohelpmeetwellbeingobjectives
5. Prevention:preventingproblemsoccurringorgettingworse,toachievewellbeingobjectives.
Thecommissionerexplainedthatadefinitionof‘prevention’hadrecentlybeenagreedwiththeWelshGovernment,andthatitsdraftbudgetfor2019/20hadbeenappraisedagainstthisunderstanding.Atlocallevel,bodiesarerequiredtoworktogetherthroughPublicServiceBoards,whichmustundertakeawellbeingassessmentandprepareawellbeingplan.Althoughthe
legislationandguidanceisrelativelyrecent,thereisalreadysomeevidenceofchangehappeningontheground.ThiswasreflectedinthewaythatPublicServiceBoardswereworkinglocallyandintheinfluencethecommissioner’sofficehadbeenabletobringtobearonpolicyatanationallevel,suchasherinterventionsonenvironmentalpermitsandontheprioritiesofcitydeals.
2.3.3 New Zealand
Atthesecondpeer-to-peereventinDecember2019,participantsheardfrom theHon.GrantRobertson,NewZealandMinisterofFinance,MinisterforSportandRecreation,andAssociateMinisterforArts,CultureandHeritage.TheMinisterprovidedanoverviewofNewZealand’srecentwellbeingbudget;thegovernment’swiderwellbeingapproach;andthecorrespondingreformswhichNewZealandisimplementingtotheirfinancesystem(seeBox4).
TheNewZealandGovernmentislookingtosolvecomplex,intergenerationalproblems.Thewellbeingbudgetisafirstimportantsteptoaddressingsomeofthechallengesfaced.Thewellbeingbudgetispartofanoverallprogrammetoputthewellbeingofcitizensattheheartofeverythingthegovernmentdoes.Achievinggenuineandenduringchangerequiresthepublicsectortomovetowardsanewwayofthinking.
21 Working Together for Wellbeing
Awellbeingapproachincludesthreefundamentalchallenges,asbelow:
1. Takingawholegovernmentapproach:breakingdownagencysilosandworkingtogethertoassess,developandimplementpoliciestoenablewellbeing.NewZealandisreformingStateSectorlegislation,whichwillnowbecalledthePublicServicesAct.
2. Intergenerationaloutcomes:theneedtofocusnotonlyonpresentgenerations’needs,butalsoontheimpactonfuturegenerations.
3. Theneedtomovebeyondnarrowmeasuresofsuccesstotrackprogressagainstbroadermeasures,alongsidetraditionalindicatorsinthebudget.
StatisticsNewZealanddevelopedanewsetofmetricscalledIndicatorsAotearoaNewZealand32.Theyprovideanover-archingsourceofstatisticsformeasuringNewZealand’s
32 StatsNZ(2020) Indicators Aotearoa New Zealand – Ngā Tūtohu Aotearoa. Availableonlineat https://www.stats.govt.nz/indicators-and-snapshots/indicators-aotearoa-new-zealand-nga-tutohu-aotearoa/
wellbeingandacomprehensivesweepofoverahundredsocial,cultural,environmentalandeconomicindicators.
ThereformofNewZealand’spublicfinancesystemaimstoreducetheriskaversioninherentinpublicservicesandpromoteinnovation.ThereisaneedforapublicfinancesystemthatenablesthepublicservicetopositivelyassistandimprovetheintergenerationalwellbeingofNewZealanders;increasethetimeandfocusonstrategicmanagementofpublicfinances;andshiftthesystemtowardsimprovingintergenerationalwellbeing.NewZealandrecentlyamendedthePublicFinanceActtorequiretheMinisterofFinanceandallgovernmentdepartmentstoreportonchildwellbeingandchildpovertyreductionateachbudget.Atthetimeofthebudget,theMinistermustdiscussprogressmadeinlinewithmeasuresandlegislation.Inaddition,theActwasamendedtorequireallgovernmentstosetwellbeingobjectivesandexplainhowobjectivesguidebudgets.Theyarerequiredtoreportperiodicallyonthestateofwellbeing,toensurethatitisanenduringapproach.
Box4:NewZealand’sApproachtoWellbeingIn2019NewZealanddelivereditsfirstwellbeingbudgetwhichsignalledanewapproachandasignificantchangefromtraditionalbudgets,focusingprimarilyoneconomicdatausinganarrowrangeofindicatorssuchasGDP.Thewellbeingbudgetaimstoplacewellbeingatthecentreofeverystepofthebudgetprocess,fromsettingprioritiestoanalysingpolicyproposals,weighingupthetrade-offsandmakingthedecisionsthattheGovernmentmustultimatelymakeinabudgetprocess.Thewellbeingbudgetfocusedonfivepriorityareas,asbelow:
1) Supportingmentalwellbeing2) Reducingchildpovertyandimprovingchildwellbeing3) LiftingMaoripopulations’skills,incomeandopportunities4) Supportingathrivingnationinadigitalage5) Creatingopportunitiesforproductivebusinessesandregionstoachieveasustainableandlow
emissionseconomy.
TheprioritieswereselectedusinganevidencebaseofindicatorsfromNewZealand’sLivingStandardsFrameworkdashboard,alongwithadvicefromkeystakeholders.Theframeworkhasindicatorsonwellbeing,andhasasimilarstructuretotheOECDframework,allowinginternationalcomparisons.
22 Working Together for Wellbeing
2.4WellbeingandCommunity Planning in Northern Ireland
TheCarnegieRoundtableonMeasuringWellbeinginNorthernIreland,apartnershipbetweentheCarnegieUKandQueensUniversityBelfast,wasestablishedin2013.IttookitsleadfromtheStiglitz-Sen-FitoussiCommission.The18memberscomprisedcivilservantsandindividualsfrombusiness,thethirdsector,youth,academiaandlocalgovernment.FromtheoutsettheRoundtableidentifiedtheneedtoencourageanewnarrativeorvisiondrawingonthelanguageofwellbeing:
In order to move forward, we need an idea of where we are going and one that resonates with citizens. Wellbeing provides an easily understood concept which can form the basis of a new approach to the relationship between citizens and government, focusing on assets and shared responsibilities between citizens, communities, government and the private sector. The concept of wellbeing can be used to link the everyday experiences and priorities of people with the sometimes remote and often opaque world of policymaking and politics.33
Followingextensiveengagementwithcivilsocietyandthroughparallelengagementfromthechildren’ssectoronoutcome-basedaccountability,theNorthernIrelandExecutivepublishedanoutcome-basedProgrammeforGovernmentin2016.TherehavenowbeenthreeiterationsofthisProgrammeforGovernment,thefirstandsecondbothissuedin2016,andathird‘workingdraft’thatcoveredtheperiodwhentheStormontgovernmentcollapsed34.Thedevelopmentofthewellbeingapproachwashamperedseverelybythelengthyperiod
33 Doran,P.,Woods,JandWallace,J.(2015)Towards a Wellbeing Framework for Northern Ireland. Availableonlineathttps://www.carnegieuktrust.org.uk/publications/towards-a-wellbeing-framework-short-report/
34 NorthernIrelandExecutive(2018)Working Draft Programme for GovernmentBelfast,NIExecutive
ofsuspensionofStormontfrom2017to2020.Atthetimeofwriting,anewProgrammeforGovernmentwithupdatedandrevisedoutcomesisbeingdeveloped.
TherehasbeenmorestabilityatlocallevelinNorthernIreland.TheLocalGovernmentAct(NorthernIreland)2014gavetheelevennewlycreatedlocalauthorities(downfrom26)theresponsibilityforleadingcommunityplanningprocessesfortheirrespectivedistricts.Indoingsotheymustidentify:
(a)long-termobjectivesforimprovingthesocial,economicandenvironmentalwellbeingofthedistrict
(b)long-termobjectivesinrelationtothedistrictforcontributingtotheachievementofsustainabledevelopmentinNorthernIreland.
Thepurposeofthereformoflocalgovernmentwastocreateefficiencysavings(tobereinvestedintoservices),strengthenthecoherenceoflocalpublicservicesandprovidelocalgovernmentwiththekeyroleinrelationtocommunityplanning35.Thelanguageofsustainabledevelopmentandwellbeinginthelegislationcannothavebeenaccidental.However,giventhepaucityofcommentaryonthisaspectofthechange(withmostreportsfocusingonthereductionofcouncilentities),thetransformativenatureofthelegislationmaynothavebeenfullyrealiseduntilsomewayintoimplementation.
TheresultantCommunityPlansextendbeyondthelocalgovernmentelectoralcyclewithsixplanslookingforwardasfaras2030,andfourto2032.ThePlansactaslocalwellbeingframeworksinwhichlocalauthoritiesandtheirpartnersasCommunityPlanningPartnershipsmusttakeaccountofwellbeingatalocalandNorthernIrelandlevel.Asearlyas2017,therewereconcernsthatsupportforimplementationhadbeenlimitedtostatutoryguidancefortheoperationofcommunityplanningfromtheNorthernIrelandExecutive,andlimitedfundingforCommunity
35 OECD(2016)Public Governance Review of Northern IrelandParis:OECD
23 Working Together for Wellbeing
Placestoprovideshort-termsupport36.NILGAhadcalledformorebudgetarycertaintytosupportlonger-termcouncilinvestmentdecisionsdesignedtoassistinthedeliveryoftheProgrammeforGovernmentandcommunityplanning37.
2.4.1 Developments since 2017
ByMajellaMcCloskeyandAnneMcMurray,Centre for Effective Services
SeveralrecentreportshaveidentifiedthechallengeofimplementingcollaborativepublicpolicyinNorthernIrelandandtheseareworthexamininginthecontextofcommunityplanning.Inaddition,previousmechanismstosupportreformandcollaborationinNorthernIreland’spublicsectorhaveyieldedhelpfullearningaboutthechallengesofthistypeofwork.PivotalPublicPolicyForum38hasoutlinedsomeofthechallengesforgovernmentinNorthernIrelandindeliveringtheNewDecadeNewApproachdeal39.Itsreporthasdescribedthelackofsharedvision,issueswithcompetenceintheNorthernIrelandCivilServiceand“thefact[that[departmentsarefundedinsilos”,andcallsforgreaterengagementwithagenciesandorganisationsoutsidecentralgovernment:“TheExecutiveandcivilserviceshouldenablethisengagementbymakinginformationandopportunitiesavailable,forexampleinthedevelopmentoftheProgrammeforGovernment”.
AreportfromDeloitteexaminedtheimpactandlearningfrominvestmenttoenablecollaborativeandinnovativeactioninthepublicsectorandstressedthatcollaborationisnecessaryto
36 CommunityPlaceshttps://www.communityplaces.info/37 Seeforexample(2016)NILGA Response to Draft
Programme for Government (PfG) Consultation Availableonlineathttp://www.niassembly.gov.uk/globalassets/documents/executive-office/draft-pfg-2016-21/pfg-consultation/nilga.pdf
38 PivotalPublicPolicyForum(2020)Good Government in Northern Ireland. Availableonlineathttps://www.pivotalppf.org/our-work/publications/3/good-government-in-northern-ireland
39 IrishGovernmentandUKGovernment,(2020)New Decade New Approach. Availableonlineathttps://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/file/856998/2020-01-08_a_new_decade__a_new_approach.pdf
achieveoutcomesandensureservicesmeettheneedsofserviceusersandshouldbecomethe’norm’40.ThisreportdescribesinvestmentbyAtlanticPhilanthropiesatasystemiclevelinNorthernIrelandandhighlightstheneedtobuildinnovativecapacityandapproaches,aswellassharedbudgetarypracticesandincentivesforcollaborativebehaviours.
AnindependentevaluationoftheGoalProgrammeforPublicServiceReformandInnovation,whichwasajointinitiativebetweengovernmentdepartmentsinIrelandandNorthernIrelandandtheCentreforEffectiveServices,outlinesanumberoffactorsthatsupportedtheintroductionofreformsinthepublicsector41.Thereportindicatesthatdistributedleadership,whichisalignedandcascadedthroughouttheorganisation,isimportantforimplementingpublicservicereformandsupportingcollaboration.Italsoreferstotheappropriateuseofexternalsupportstoenablereform,particularlyinenablingtheuseoftoolsandtechniqueswhich,forexample,supportedevidenceuseandcollaboration.Theevaluationalsodescribestheimportanceofappropriategovernancearrangementsasanenablerofchangeandcollaboration.
ThesereportsdemonstratethesignificantchallengesfacingNorthernIreland’spublicsectorinmeetinggrowingdemands,aswellasanincreasingbodyoflearningnowavailabletothepublicsectortoenablecollaborationinachievingoutcomes.Thisincludesdataonapproachesandmechanismsthathaveenabledreformtobesuccessfullyimplemented.
In2019,theGallagherreportoncommunityplaceswasalsopublished.FundedbytheStrategicInvestmentBoardNorthernIreland
40 DeloitteandSocialChangeInitiative(2020)Shifting Gear Accelerating Public Service Transformation: Opportunities for Northern Ireland. Availableonlineathttps://www.socialchangeinitiative.com/shifting-gear-accelerating-public-service-transformation-opportunities-for-northern-ireland
41 Boyle,Retal(2019)Evaluation of the Goal Programme for Public Service Reform and Innovation. Availableonlineat https://d1j85byv4fcann.cloudfront.net/cesdownloads/Summative_Report_CES_Final-26.11.19.pdf?mtime=20210210184719&focal=none
24 Working Together for Wellbeing
thereportconcludesthatcommunityplanninghasmadesomesignificantprogresssinceitsintroduction,particularlyinestablishingpartnershipsineachareaandin“agreeinganddeliveringactionplans”42.HoweverthereareanumberofareaswherefurtherattentionisneededtoenablecommunityplanningtohavegreaterimpactinNorthernIreland.Theseincludestrengtheningleadershipacrossallpartnersandembeddingcommunityplanningintothecorporateandplanningstructuresofallpartners.TheGallagherreportalsoproposesrefiningthescopeofCommunityPlans,sothatresourcesarenotspreadtoothinlyandresourcesandeffectiveapproachesareutilisedwheretheycanmakebestimpact.Thereportproposesrefiningandmakingbetteruseofevidenceanddatatoinformandguideplanningandaction.ItalsohighlightsanumberofcommunicationchallengesforCPPs,indescribingtheirpurposeandengagingthelocalcommunityintheCPPprocesses.
42 Gallagher,J(2019)Towards a Programme of Support for Community Planning in NI.StrategicInvestmentBoardNorthernIreland
Thesefourareasofactionforcommunityplanningaretypicalofthetypesofimplementationchallengesfacedbyjoinedupor‘wholeofgovernment’approaches.Wholeofgovernmentisanover-archingtermforresponsestoincreasedfragmentationofpublicservicesandawishtoincreaseintegration,co-ordinationandcapacity43.Theefforttoreducesilosandtoavoidhavingdifferentpoliciescutacrossandundermineeachotheriswhycommunityplanningcanbedescribedasawholeofgovernmentapproach.
Theliteraturesuggeststhatwholeofgovernmentpolicyimplementationbeginsatthepolicydevelopmentstage;itisatthisstagethatpolicymakerscanascertainthatawholeofgovernmentapproachisagood‘fit’fortheparticularpolicychallenge,andlaythegroundworkforsuccessfulimplementation.
NorthernIrelandisatapointwherenewapproachesneedtobeimplementedeffectivelyinordertomeetthegrowingneedsofserviceusersandimprovewellbeing.
43 Ling,T.(2002).Delivering joined–up government in the UK: dimensions, issues and problems.Publicadministration,80(4),615-642.
Table3:IssuesRaisedbyCommunityPlanningStakeholdersintheGallagherReport
TOPIC AREASTOBEADDRESSED
Leadership,PerformanceandResources
• Scopetostrengthenleadershipacrossallstakeholders.• Performanceframeworkcouldbeenhancedtoenablegreatercentralandlocalalignment.• Partners’performancenotcurrentlymeasured.Needbetterlinkageintocorporate/businessplans.
• Councilscarryingthefinancialburden,partnersstrugglingtocontribute.Financialmodelunsustainableinthelongerterm.
ScopeofPlans • Bydefinitionverybroad–hardtofixallproblemssimultaneously.Strainsresourceswhenspreadtoothinly.
• Needsomeprioritisation–tohelpshowimpactlocally/regionally.• Highlightbestpracticeandnewapproaches,laboratoryoflearningforothers.
UseofDataandEvidence
• Multipledataissues–lackofusefuldata,toomuchdata,howbesttousedatatoshapeservices.
• Toomuchduplicationofeffort,morecentralsupport.• Benefitsinmorecollectiveapproachtoevidencegathering.
CommunicationsandCommunityInvolvement
• Needmoreclarityonwhatcommunityplanningisandtoimprovevisibility.• Approachestocommunityinvolvementvaryconsiderably.• Roleforallpartnersincommunityinvolvement.• Howbesttomanageexpectationsandidentifymodelsthatworkwell.
25 Working Together for Wellbeing
3.1 ArmaghCity,Banbridgeand Craigavon Borough Council
ThefirstCommunityPlanforArmaghCity,BanbridgeandCraigavonBoroughCouncil(ABC)wascalledConnectedanditsvisionisthatby2030:
Wehaveahappy,healthyandconnectedcommunity,avibrantandsustainableeconomyandappealingplacesforliving,workingandlearning.
Itcontainsninelong-termoutcomes,arrangedaroundthethreestrategicthemesofCommunity,EconomyandPlace,andthreecross-cuttingthemesofConnectivity,EqualityandSustainability(seeFigure4).Thepurposeoftheplanistoprovideaframeworktoimprovethequalityoflifeofpeopleandtoimprovethewellbeingoftheborough.
3.Introducingour ProjectPartners
Aspartofanopenprocess,alllocalauthoritiesinNorthernIrelandwereinvitedtosubmitexpressionsofinteresttotakepartintheEmbeddingWellbeingprogramme.Theprocessaskedthemtocommittotheprinciplesofopenness,partnershipworking,sharedlearning,andparticipation,andtheywererequiredtodemonstratesupportfromtheirChiefExecutiveandChairoftheCommunityPlanningPartnershipfortheirapplication.
TheAdvisoryGroupreviewedalltheexpressionsofinterestreceived,onefromeachcouncilareainNorthernIreland.TheywereaskedtoselectthreePartnershipsthatwerebest-placedtosharelearningonimprovinglocalwellbeingoutcomesacrossNorthernIrelandandtheUKandIrelandmorewidely.
TheAdvisoryGrouprecommendedthattheprogrammesupporttheCommunityPlanningPartnershipsworkinginthelocalauthorityareasofArmagh,BanbridgeandCraigavonBoroughCouncil;DerryCityandStrabaneDistrictCouncil;andLisburn&CastlereaghCityCouncil(seeFigure3).
Figure3:ThethreeProjectPartners
Derry City and Strabane
Armagh, Banbridge and Craigavon
Lisburn & Castlereagh
26 Working Together for Wellbeing
TheCommunityPlanwasdevelopedthroughaseriesofthematicworkshops,whichwerepubliclyadvertisedandopentoall,andwhichwereinspiredbytheFutureSearchmethodology.Workshopparticipantswerelocalresidents,communityandvoluntaryorganisations,communityplanningpartners,otherstatutoryagencies,localbusinessesandcouncillors.Together,theylookedatevidencethroughcomprehensivebaselinereportsandusedtheirownexpertiseandlocalknowledgetoworktowardsconsensusontheaspirationsofandprioritiesfortheborough.
Eachoftheninelong-termoutcomesintheplanhasassociatedpopulationindicators,atotalof19inall,tomeasureprogresstowardsachievingtheoutcomeovertime,andalsoshort-termoutcomeswhicharetheprioritiesforthefirstfouryearsoftheplan.Theplanincludesthestorybehindeachoutcome,whyitisimportantandwhatpeoplesaidaboutitduringthedevelopmentoftheplan,aswellaskeystatisticswhichprovideabaselineforhowtheyaredoingoneachoutcome.
AtthepointofjoiningtheEmbeddingWellbeinginNorthernIrelandprogramme,ArmaghCity,BanbridgeandCraigavonBoroughCouncilhadaNorthernIrelandStatisticsandResearchAgency(NISRA)statisticiansecondedtoworkwiththemtohelpunderstandtheevidencebasefortheNorthernIrelandExecutiveDraftProgrammeforGovernment,andtomaximiseopportunitiestoalignthepopulationindicatorsinourCommunityPlanwiththeindicatorsintheProgrammeforGovernment.Therefore,theywereabletoselectpopulationindicatorsthatwererelevanttotheaspirationsofthecommunity,andassomearealsobeingusedtomeasureprogresscentrally,theywereabletocreateagoldenthreadbetweenthetwo.
TheCommunityPlanningStrategicPartnershipadoptedanapproachthatcombinedthreeinterconnectedelementsofpartnershipworking,communityengagementandusingevidence:
• Partnershipworking–everythingdoneinthenameofcommunityplanningintheboroughisoverseenbypartofthecommunityplanninggovernancestructure,withopportunitiesforpartnerstoleadonactionsandthematicworkstreams;
• Communityengagement–undertakeninlinewithourCommunityEngagementStrategy.Thepartnershiphasagreedtodevelopacollaborativeframeworkforcommunityplanning.Thiselementoverlapswithpartnershipworking,asawiderangeoforganisationsincludingthosefromthecommunityandvoluntarysector(CVS)andbusinessareactiveparticipantsintheactionplanningteams,andthiswillbefurtherdevelopedthroughtheCommunityandVoluntarySectorPanel;and
• Usingevidence–usingevidencefromengagement,research,statisticsandevaluationtodetermineprioritiesandwhatworks.UsingstatisticsandOutcomesBasedAccountabilityperformancemeasurestomeasurebothprogressovertimeandtheimpactofactions.
Figure4:ABCConnected:OurPlanonaPage
27 Working Together for Wellbeing
Thisapproachhasinformedtheborough’sprocessfordevelopingthematicactionplanstodelivertheoutcomesintheplan.PartnersledeachthematicworkinggroupthatdevelopedtheCommunityPlanandcontinuedtolead,aseachthematicactionplanningteamwaschairedbyastatutorypartner.In2020thePartnershipsetasideitsthematicactionplanstofocusitsenergiesonresponsetoandrecoveryfromthepandemicthroughthedevelopmentofa12monthCOVID-19Response&RecoveryPlan.TheplanincludedtheTAK£500ParticipatoryBudgetingprojectandthethreesharedleadershipprogrammessupportedthroughtheEmbeddingWellbeinginNorthernIrelandproject.TheParticipatoryBudgetingandsharedleadershipprogrammesequippedcommunityplanningpartnersandcommunitieswithresources,skillsandconnectionsthathelpedthemtorespond.
Inadditiontotakingpartinthecollectiveprogrammesonco-productionandsharedleadership,ABCalsoreceivedthefollowingbespokesupportfromtheEmbeddingWellbeinginNorthernIrelandprogramme:
• SupportforthedevelopmentoftheirCommunityEngagementStrategy
• DevelopmentofGoodPracticeinCommunityEngagement
• LeadershipandEngagementforCommunityPlanningTrainingSessionsdeliveredbyDrClaireBynnerfromGlasgowUniversityandDrOliverEscobar,UniversityofEdinburgh(bothpreviouslyWhatWorksScotland)
• 3SharedLeadershipProgrammes.
3.2DerryCityandStrabaneDistrictCouncil
TheStrategicGrowthPartnership(CommunityPlanningPartnership)forDerryCityandStrabanewasformedinJuly2016toprovideoverallgovernanceandoversightofthecommunityplanningprocess.ThisPartnershipisco-chairedbythecommunityandvoluntary,businessandstatutorysectorsalongwiththeMayor.Thestatutorypartnersnamedinthelegislationarejoinedbypoliticalrepresentatives,centralgovernmentdepartments,thecommunityandvoluntarysector,Chairsofthe8LocalAreaGrowthPartnershipBoardsandkeyregionalsupportpartners–suchasUlsterUniversityandtheNorthWestRegionalCollege.
DerryCityandStrabaneDistrict(DCSD)StrategicGrowthPlan/CommunityPlanwasdevelopedasaresultofaco-designprocessandlaunchedinNovember2017.Theagreedvisiondefinedwithintheplanistobeathriving,prosperousandsustainableCityandDistrictwithequalityforall.Theplan’smissionistoimprovethesocial,economicandenvironmentalwellbeingofallcitizensandtodosoinasustainableway.
Over15,000peoplewereengagedtoagreethefollowingeightoutcomes:
EconomicWellbeing:1. Wearebetterskilledandeducated2. Weprosperthoughastrong,sustainableand
competitiveeconomy3. Weliveintheculturaldestinationofchoice
EnvironmentalWellbeing:4. Welivesustainably–protectingand
enhancingtheenvironment5. Weconnectpeopleandopportunities
throughourinfrastructure
SocialWellbeing:6. Welivelong,healthyandfulfillinglives7. Weliveinashared,equalandsafe
community8. Ourchildrenandyoungpeoplehavethebest
startinlife.
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In2018whenDerryCityandStrabaneDistrictCounciljoinedtheEmbeddingWellbeingprogramme,adraftPartnershipAgreementwasinplaceforthePartnershipwhichstatedthatthoseofficersattendingmeetings“willbeexpectedtospeakauthoritativelyfortheirorganisationsandcommitthemtoagreedcoursesofaction”.Indoingsopartnersdemonstratetheircommitmenttothecommunityplanningprocessbybeingaccountableforthesuccessfuldeliveryofactionswhichcontributetoachievingtheiroutcomes.
TheyhadalsodevelopedtheeightoutcomesandeightcorrespondingOutcomeDeliveryPlans.OutcomeDeliveryPartnerships(ODPs)havebeenestablishedtoimplement,deliverandreportontheactionsintheStrategicGrowthPlan.MembershipoftheODPscomprisesallthepartnersresponsibleforthedeliveryofactionswithinaparticularoutcome.StatutorypartnerswithintheODPshaveagreedtoleadontheimplementationandbenamedas‘ActionLeads’forspecificactions.
WhilstthisCommunityPlan/StrategicGrowthPlantakesastrategicviewofthewholeDistrict,italsorecognisesthatitisimportanttoconnecttotheneedsandaspirationsatamorelocallevelwithinneighbourhoodsandcommunities.Aspartoftheco-designprocess,eightlocalareabasedCommunityPlanshavealsobeendeveloped.LocalresidentsandstatutoryandsupportpartnersgavetheirviewsonhowpublicservicescouldbebetterprovidedintheirowncommunityareasandidentifiedlocalactionsalignedtotheStrategicPlanthataddresslocalneeds,reduceinequalitiesandimprovewellbeing.ImplementationofthelocalareaGrowthPlansisoverseenbyeightareabasedLocalAreaGrowthPartnershipBoards.
Brexitpresentsuniquechallengesandopportunitiesforacityanddistrictstraddlingacrossjurisdictionalborder.DCSDCandDonegalCountyCouncilpublishedresearchinFebruary201744outliningthatwhiletheresultsofBrexitwill
44 DCSDC/DonegalCountyCouncil(2017)Initial Analysis of the Challenges and Opportunities of Brexit for the Derry~Londonderry North West City Region. Availableonlineathttps://www.derrystrabane.com/Subsites/Strategic-Growth/Publications
haveadifferentialgeographicalimpactacrosstheseislands,theeffectsontheNorthWestRegionmaybesignificantandsustainedunlesscoherent,decisiveandmitigatingactionsaretaken.Strongcrossbordercollaborativearrangementshavebeenputinplace.ThemodelisCouncil-ledandisfoundedonaprincipleofpartnershipbetweenlocalandcentralgovernment,withplace-makingatitscoreandwithafocusondrivingregionaleconomicgrowthandinvestment,physicalandenvironmentaldevelopmentandsocialandcommunitycohesionandwellbeingacrosstheNorthWest,inparticulartheDerryCityandStrabaneDistrictandDonegalCountyCouncilareas.AtastrategiclevelitcomprisestheNorthWestStrategicGrowthPartnershipwhichincludestheChiefExecutivesofbothDonegalCountyCouncilandDerryCityandStrabaneDistrictCouncil,theMayor/CathaoirleachofeachCouncil,andrepresentativesfromthekeygovernmentdepartments,NorthandSouth,withabriefineconomicandregionaldevelopment.ThisbodyplaysakeyroleinsupportingcentralgovernmenttodeliverontheNorthWestGatewayInitiativeandintrackingkeycentralgovernmentinvestmentsrelevanttothegrowthoftheNorthWestRegion.MoreoversimilarcollaborationswiththeCentreforCrossBorderStudiestocreateACommonChapterforCollaborationensurethatgrassrootscommunitiesarealsoengagedindialoguetoscope,mitigateandcapitaliseontheopportunitiesandchallengespresentedbyBrexit.
Inadditiontotakingpartinthecollectiveprogrammesonco-productionandsharedleadership,DerryCityandStrabanealsoreceivedthefollowingbespokesupportfromtheEmbeddingWellbeinginNorthernIrelandprogramme:
• SupportforthecreationofaninnovativeNaturalCapitalAccount.
• SupporttowardsthecommunicationandmarketingofthefirstStatementofProgress.
• SupportforaYouthParticipatoryBudgetPilot.• SupportforthedevelopmentofaCommunity
EngagementStrategy.
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3.3Lisburn&CastlereaghCity Council
Lisburn&CastlereaghCommunityPlanningPartnership’sfirstCommunityPlanisdescribedasaplanforimprovingthelivesofeveryonewholivesandworksintheareabybuilding“anempowered,prosperous,healthyandinclusivecommunity”.
Theirapproachcanbesummarisedasfollows:
• People:ThefocusoftheplanisfirmlyonthepeoplewholiveandworkinLisburn&Castlereagh.Wewillknowiftheplanisworkingifpeople’sliveshavechangedforthebetter–betterhealth,betterwork,bettereducation,betterchildhood,betteroldage.
• Place:Whereweliveandthecommunitieswebelongtoarecrucialtoourwellbeing.Thisplanaimstohelpuslivewelltogetherinplaceswherewefeelasenseofprideandbelonging.
• Partnership:Communityplanningisanewapproachtopartnershipbetweenpublicbodiessuchashealth,education,sport,policeandthelocalcouncil;partnersworktogethertowardscommongoalsalongsideotherorganisationswhowanttomakeLisburn&Castlereaghabetterplacetoliveandworkin.
• Wellbeing:Theplanisbackedbylegislationrequiringittoimprovethesocial,economicandenvironmentalwellbeingofLisburn&Castlereagh.ThePartnership’swellbeingvisonisforanempowered,prosperous,healthyandinclusivecommunity.
• Sustainability:Theplanisaboutmakinglifebetternowinawaythatdoesn’tcompromisethesocial,economicandenvironmentalwellbeingoffuturegenerations.Sustainabledevelopmentisthefirstcoreprinciplerunningthroughthisplan.
• Equality:Inequalityunderminesthewellbeingofpeople,ourcommunities,oureconomyandourenvironment.Reducinginequalitiesisthesecondcoreprinciplerunningthroughtheplan.
• Participation:Theabilitytofullyparticipateinademocraticsocietyisvitalforourwellbeing.Thisplanandtheactionsitwillgeneratedependonthefullinvolvementofcitizens,communitygroupsandbusiness.Thisistheplan’sthirdcoreprinciple.
• Outcomes:ThisCommunityPlantakesanoutcomesbasedapproachbasedonevidenceofwhatisneeded.Thismeansthatthefocusisfirmlyonthechangeswewanttoseeasaresultoftheworkwedo:realchangesinthequalityoflifeinLisburn&Castlereagh.
• Actions:Theactionsthatthisplangenerateswillallcontributetooneormoreoftheoutcomes.TheywillbetheresultofcollaborationbetweentheCommunityPlanningPartnerssharingideas,experienceandresourcestoproducebetteroutcomes.
• Accountability:Regularpublicreportingwillenablepeopletoseehowallthoseinvolvedaremakingprogress.
Theplanisconstructedaroundfivethemes,eachwithanoutcome(alignedwiththeProgrammeforGovernmentoutcomes)andanumberofsupportingoutcomes(seeTable4).ThepublicconsultationontheDraftCommunityPlangavethepartners,communitiesandindividualsthechancetodiscusstheproposedvision,mission,outcomesandactionsinmoredetail.Aswellasgivingfeedbackonthedocumentitself,peoplediscussedwhattheCommunityPlanmeanttothem,theirfamilyandcommunity.Organisationsidentifiedwhatroletheycouldplayinimprovingwellbeing.Thefeedbackwasreceivedthroughpublicmeetings,workshops,focusgroups,anonlinesurvey,letters,emailsandfeedbackboxes.
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Table4:Lisburn&Castlereagh’sFiveOutcomes
Theme Outcome SelectedSupportingOutcomes
1:ChildrenandYoungPeople
Ourchildrenandyoungpeoplehavethebeststartinlife.
• Allchildrenandyoungpeoplehaveanequalchancetofulfiltheireducationalpotential.
• Childrenandyoungpeopleinneedandlookedafterchildrenexperiencestabilityandpositivetransitionsintoadulthood.
• Thepositiveroleofchildrenandyoungpeopleinthecommunityisvaluedandencouraged.
2:TheEconomy Everyonebenefitsfromavibranteconomy.
• Thebenefitsofgrowthanddevelopmentaredistributedfairlyacrosssociety.
• Thereisagoodjobforeveryonewhoneedsone.• Peoplepossesstheskillsneededtosecure
employmentand/orstartabusiness.
3:HealthandWellbeing
Welivehealthy,fulfillingandlonglives.
• Goodhealthwillnolongerbedependentonwhereweliveorwhatincomewehave.
• Peopleofallagesaremorephysicallyactivemoreoften.
• Weenjoygoodmentalhealth.
4:WhereweLive Weliveandworkinattractive,resilientandpeoplefriendlyplaces,protectingthelocalandglobalenvironment.
• Neighbourhoodsaredesignedandregeneratedtopromotewellbeing.
• Everyonelivesinanaffordablehomethatmeetstheirneeds.
• Wehaveaccesstoessentialservices,shops,leisureandworkplaces.
5:OurCommunity Weliveinempowered,harmonious,safeandwelcomingcommunities.
• Publicservicesareenhancedthroughco-designandco-production.
• Thereisparticipationandvolunteeringinpublicandcommunitylife,arts,cultureandsportbypeopleofallbackgrounds.
• Wefeelasenseofbelonginginourlocalneighbourhoods:urban,suburbanandrural.
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TheStrategicCommunityPlanningPartnership(SCPP)hasoverallcontrolofthecommunityplanningprocessandagreesandapprovestheactionstobedeliveredbyfiveThemedActionPlanningGroups(TAPGroups).Thesecomprisestatutoryandsupportpartnersandrepresentativesfromthecommunityandinterestgroups,andeachTAPGrouphasachairpersonfromapartneragencyortheCouncil.
APartnershipAgreementcommitstheSCPPandTAPGroupstoshareinformation,capturewhatisnew(butacknowledgeswhateachpartnerisalreadydoing),andinitiateactions.TheactionssetoutintheActionPlanhavebeendevisedasaresultofcollaborativeworkinganddemonstratethatbyworkinginpartnershipandsharinginformationnewwaysoftacklingproblemscanbedeveloped.Eachactionisinterdependentwithotheractions.EachactionintheActionPlanhasaleadpartnerandanumberofnameddeliverypartners.Thecommunityplanningprocessaimstostrengthenthevoiceofindividualsandthecommunitybyinfluencingprioritiesandultimatelyimprovingthedeliveryofpublicservicesthroughco-designandco-production.Toactionthis,thecouncilisdevelopingaCommunityForumwhichwillformpartoftheStrategicCommunityPlanningPartnershipstructure.Membersofacommunitystakeholderforumwillbedrawnfromacrossnon-governmentalorganisationsandcommunityandvoluntarysectororganisations.
AtthepointofjoiningtheEmbeddingWellbeinginNorthernIrelandprogrammeLisburn&CastlereaghCityCouncil(LCCC)wasbeginningtoexplorehowthisForumwouldoperatetoensureproactiveengagementbetweenmembersoftheForumandcommunityplanningpartnersandtomovebeyondinformationsharingandconsultation.Similarly,aYouthCouncilhadbeenestablishedtoenableyoungpeopletobeinvolvedwiththeCommunityPlanactionsandmorewidelyinthedecisionsthataffecttheirlives.
TheLCCCareasharesboundarieswiththefiveneighbouringcouncilsandthereisahostofinter-relationshipsbetweencouncilareas.Lisburn&CastlereaghhasworkedcollaborativelywiththeCommunityPlanningPartnershipsinneighbouringcouncilareastoensureoutcomesaresymbioticandcomplementary.
Inadditiontotakingpartinthecollectiveprogrammesonco-productionandsharedleadership,Lisburn&CastlereaghCommunityPlanningPartnershipalsoreceivedthefollowingbespokesupportfromtheEmbeddingWellbeinginNorthernIrelandprogramme:
• SupportforexploringthedevelopmentofanemergingCommunity,VoluntaryandSocialEnterpriseinfrastructure
• Supportforaco-productionengagementprojecttodeveloplocalityplans
• MeasuringtheimpactofVitality,alocalwellbeingprogramme.
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ThischapterdrawsoutthelearningfromtheEmbeddingWellbeinginNorthernIrelandprogrammeandinparticularhighlightstheprogressthathasbeenmadeintermsofgoodpracticeinengagementandco-productionbutalsothedevelopmentneedsofpartners,inparticularthecommunityandvoluntarysector.Examplesorsupportingevidenceareshadedinthetexttohighlightthevalueoftheempiricalworkwiththecouncilsandhowthesehaveshapedthelearningthemes.Sixlessonsarehighlightedalthoughtheseareclearlybroadanddonotaimtocapturealltheeffectsandbarriersindeliveringeffectiveco-productionandengagement.Eachoneisdrawnfromtheinitialsymposium,thethreecouncilprogrammesandthefinallearningworkshop,andemphasisestheneedforfurthersupportinco-production,engagementandwellbeingand,critically,therelationshipbetweenthem.
4.1 Lesson1:Building the Environment for Co-production
Thereisageneralcommitmenttowellbeingandengagementascentralcomponentsofcommunityplanningbutitwasalsoacknowledgedthatprogresshasbeenslowacrosscouncilareas.
StakeholdersinvolvedintheCo-productionSymposiumforexample,feltthatthereneededtobeastrongerenablingenvironmentacrosslocalauthorities,statutoryorganisationsandsectorstodeliverwellbeingoutcomesinparticular.
TheworkwiththethreecouncilsandinparticulartheSymposiumemphasisedtheneedtobetterconnectco-productiontothewellbeingagendaandespeciallytheneedsofthemostvulnerableplaces,groupsandsectors.Thisemphasisedarangeofrelatedissues:
4.WhatweLearnt aboutCo-production
ByColmBradley,LouiseO’KaneandBrendanMurtagh(CommunityPlaces)
Co-productionwasidentifiedbytheprojectpartnersasoneofthekeyareasforactivityduringtheEmbeddingWellbeingprogramme.Thisincludedsharedactivitiesonunderstandingandworkingwithco-productionandbespokesupportfortheprojectpartnersprovidedbyCommunityPlaces.ThischapterwasproducedbyCommunityPlacesafteraprogrammeofworkonco-productionincommunityplanningthatinvolvedbackgroundresearch,stakeholderengagementandworkacrosscommunityplanningprocessesinthreeareas.
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Figure5:PrioritiesforCo-productioninNorthernIreland
Box5:SixLessonsfromtheProgrammeofWorkLesson1:Buildingtheenablingenvironmentforco-productionmeansputtinginplacethelegislation,technicalcapacityandresources(includingtime)toensurethatitdeliversmeaningfulwellbeingoutcomes.
Lesson2:Makingengagementworkinpracticemeanscommittingtoagreedprinciples,operatingstandardsandguidancetoensureeachactorcandeliveroutcomesinacollectiveandreinforcingway.
Lesson3:Inclusivestructuresareneededtoembedco-productionatastrategicandoperationallevelandtoensurethatengagementisthebasisforprioritisingissues,deliveringprogrammes(acrossthemesandgeographicareas),measuringprogressandbuildingapartnershipculture.
Lesson4:Co-producingresource-basedoutcomesbyensuringthatcapitalandrevenuebudgetsarealigned,integratedandinfluencedbythecommunitiesthataremostaffectedbydecisions.
Lesson5:Makingoutcomesrealbyensuringthatitischangesinthequalityofpeople’slivesandinparticulartheirindividualandcollectivewellbeingthatdrivecommunityplanningprocesses.
Lesson6:Thesuccessofco-productionandengagementisdependentoninterpersonalrelationships,acontinuousprocessofsharedlearning,andsoftandformalnetworksthatneedtobenurturedanddevelopedoverthelifeofthecommunityplanningprocess.
The enabling environment
Technical assistance
Time and commitment
Best practice
AclearandagreedpolicyframeworkAlegislativeframeworkforco-productionacrossgovernmentMoreeffectiveadvocacyandsellingtheconcept
ToolkitstosupportpracticeAquick-guideaccessibletousersinvolvedintheprocessEngagedsupportthroughouttheprocess
Timeandpatiencetoplanforanddeliverco-productionLeadershipatastrategicandoperationallevelTrustandmutualcommitmenttoeffectaculturalchange
ExperienceandexamplesfromotherplacesSharingpracticewithincommunitiestostrengthenpracticeAchievingbuy-infromactors
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• Co-designshouldbeattheheartoftheapproach,especiallytoensureupstreamandmeaningfulengagementinordertosetpriorities,definelocalneedsandagreespecificoutcomesintheCommunityPlan.
• Thiswillrequireamoregroundedbottom-upapproachthatmovesbeyondvaguecommitmenttoengagecommunitiestodesign,commissionanddeliverprogrammesofworkthatmeettheirexpressedneeds.
• Centraltothiswillbeabetterunderstandingofparticipative(aswellasrepresentative)formsofdecisionmaking,whichwillalsorequiretimeandleadershipincreatinganewcultureofinclusivedelivery.
• Breakingdownorganisationalsilos,professionalisationandsectoralrivalriesareallcentraltocommunityplanningandtohowco-productionmightencourageagenuinelycooperativeapproach.
• Shiftingtheemphasistoamoreplannedandpreventativeapproachrequiresbetterintelligence,analysisandinformationsharing,especiallyonsettingandmeasuringoutcomeperformance.
• Allofthisrequiresachangeinthewayinwhichthepublicsectorthinksaboutandframesserviceusers,towardsamodelthatseesthemasvaluedco-producersaimedatimprovingthealignment,effectivenessandefficiencyofarangeofprogrammesandinterventions.
• Co-deliveryimpliesastrongerroleforthethirdsectoraspartnersinprogrammeimplementationtakingresponsibilityforagreedoutcomes.AswesawintheSymposiumevidencefromScotland,amoreprogressiveenablingenvironment(socialvalueprocurement,communityrights,assettransferlegislationandsoon)hassupportedcommunityanchororganisationsandsocialenterprisesinservicedelivery.
4.2Lesson2:MakingEngagement Work in Practice
Arecurringthemefromthethreecouncilsistheneedtodefine,agreeandhelpoperationalisecommunityengagementinpractice.FortheCommunityPlanningPartnershipintheDCSDCarea,thismeantunderstandingandagreeingfundamentalprinciples,recognisingthelimitsaswellasthepotentialofarangeofmethodologies,andbetterintegratingengagementintothedesignanddeliveryofcommunityplanningoutcomes.DrawingontheIAP2SpectrumandScottishNationalStandardsforCommunityEngagement,CommunityPlaceshelpedtoco-produceanagreedstrategyfortheCommunityPlanningPartnership.TheStrategicGrowthPartnershiphasnowagreedtheCommunityEngagementStrategywiththepartnerscommittingtoapplyingacommonframeworkandstandardsforengagingpeopleandcommunitiesandtosharingandlearningfromtheirpractice.
However,thisinitselfalsoneededtobeturnedintoactiontomakesuretheprinciplesweredeliveredinpractice.Thus,thePartnershipprioritisedapracticalguidetohowgroupswithinthecommunityplanningdeliverystructurecouldapplytheprinciplesofco-production.ThesegroupsincludeeightlocalplanninggroupsandanumberofThematicGroups(olderpeople,ruralandsoon).TheLocalGrowthPartnershipsareDistrictElectoralAreabasedbodiescomprisedofcommunityandelectedrepresentativestogetherwithothercommunityplanningpartnersandaretaskedwithdeliveringaspecificLocalGrowthPlanthataimstohelpdelivertheoverarchingCommunityPlan.TheobjectivesoftheGuideweretostrengthenpartnershipworking;createacommonunderstandingofco-productionandhowtooperationaliseit;andinparticulartoimplementtheoutcomeon‘partnershipworkingtoco-designanddeliverservices’(SeeBox6).
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Similarly,theCommunityPlanningPartnershipintheABCareaemphasisedtheneedtogobacktobasicprinciplessothatallthepartnerssharedacommitmenttoengagementbyagreeingwhatitmeant,applyingmorerigorousmethodologiesandconnectingitmoreclearlytowellbeingoutcomes.
TheCommunityPlanningTeamrecognisedthatengagementwasitselfanill-definedconcept,whichpartnersinterpretedverydifferently,especiallyhowitshouldbeoperationalised.TakingasitsstartingpointtheIAP2CommunityEngagementFramework45andtheScottishNationalStandards46,theworkhelpedtodevelopaCommunityEngagement‘HowTo’Guidecovering:
45 InternationalAssociationofPublicParticipation.https://www.iap2.org/
46 ScottishGovernment/ScottishCentreforCommunityDevelopment(2016)National Standards for Community Engagement. Availableonlineathttp://www.voicescotland.org.uk/
• agreeingcommontermsandstandards• howtoplananddesignengagement
processes• anEngagementPlanTemplatesupportingthe
applicationofthestandardsforengagementwhichthoseplanningaprocesscompleted
• detailsof19methodsofengagementandguidanceonhowtoselectthemostappropriatemethods
• aself-evaluationframeworkforreflectionontheprocessandoutcomes.
OncompletionoftheGuidetwotrainingworkshopsweredeliveredforofficersfromacrosstheCommunityPlanningPartnershipandCVSrepresentatives.However,fortheABCPartnership,havingmultiplestrandstoeffectiveco-productioninvolvesnotonlyastrategyofengagementbutalsoameansofrelatingtonewstructurestoensurethatitworksinpractice.
Box6:TheGuidetoApplyingCo-productionin Community PlanningTheGuidetoApplyingCo-productionisconcernedwithhowpartnershipscanbestapplytheprinciplesofco-productionthrough:
• Acommonunderstandingofthecharacteristicsof‘goodpartners’• Anagreeddefinitionofco-productionanditsprinciples• Acharterofco-productioncommitments• 12practicalstepstoapplyingtheprinciplesinallmeetingsbetweenpartners• Atemplateforongoingevaluationandreflectiononprogress.
AtoolkithasalsobeenproducedbyCommunityPlaces*.
* CarnegieUK/CommunityPlaces(2021)Guide and Charter for Partnerships on Applying Co-ProductionAvailableonlineatwww.carnegieuktrust.org.uk
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4.3Lesson3:InclusiveStructures and the Co-productionChain
Howco-productionfitswithincommunityplanningstructuresandarea-baseddeliveryinparticularisaconcernraisedthroughtheprogrammeatbothastrategicandoperationallevel.TheCo-productionSymposiumemphasisedtheneedtoeffectaculturalchangeinengagementthatmeanssharingpowerinresourceallocation,blurringboundariesandsurrenderingcontroloverdecisionmaking.Thisinturnrequiresgovernancestructuresthatarealignedwithoutcomesratherthanthefunctionalresponsibilitiesofgovernmentagenciesorcommunityactors.
IntheABCareatheCommunityEngagementsupportlaidthefoundationfortheadoptionofasharedpolicybypartnersandarangeofmethodologieswithwaysofimplementingthemthroughtheirCommunityEngagementStrategy.Thepartnershipprioritisedboththemes
oftheEmbeddingWellbeingProjectwithinitsgovernancestructureswiththeestablishmentofaLeadership&CommunityEngagementCommunityPlanningStrategicPartnershipSub-Committee,chairedbytheNorthernIrelandHousingExecutive.Here,co-productionisembeddedatastrategiclevel.
TheCommunityPlanningPartnershipintheABCarea(seeFigure6)prioritisedtwoarea-basedplanswithaviewtocreatingamorelocalisedapproachforcoordinatedinvestmentsineachneighbourhood.Facilitatedandaction-focusedengagementsecuredmeaningfulinvolvementbyenablingcommunityorganisationsandstatutorypartnerstoprioritise,planandsetrelatedoutcomesineachcase.InparalleltothisworkthePartnershipbeganengagementwiththeCVStoexplorewhattypeofstructuresorprocesseswouldbestenabletheongoinginvolvementofthesectoratDistrictElectoralArea(DEA)level.
Theimportanceofinclusivedecision-makingstructuresalsorelatestothewayinwhichco-productionworksthroughsubstructures;
Figure6:ABCCommunityPlanningPartnership
37 Working Together for Wellbeing
theimportanceofleadershipandculturalchange;andthesystemsthatareneededwithinCommunityPlanningPartnershipstoeffectalong-termcommitmenttoengagement.TheserelatedissuesneedtobeaddressedinthefutureofcommunityplanninginNorthernIreland:
• Howdoesco-design,commissioninganddisseminationappearincommunityplanningstructures(includingthematicandarea-basedworkinggroups)andwhatisneededinthefuturetostrengthenamorestrategicapproach?
• Similarly,arestructurescapableofenablingco-production(whichinturnlooksatthesignificanceofnetworks,hybridgovernancemodelsandblurringtheboundaries)asopposedtoconventionalgovernancearrangementsandconsultationopportunities?
• Leadership,co-workingandcommitmentarecritical,giventhedifferentrolesandconstraintsplacedonpoliticians,officialsandcommunityrepresentatives.People,mind-setsandeffectingaculturalshiftinthewayinwhichpolicyismadeinpracticeareessentialtoembeddingco-productionincommunityplanning.
• Whatsystemsmakeco-productionworkinpractice,particularlyinvitalareassuchasprocurement,settingandmeasuringoutcomesandputtinginplacetheregulatoryenvironmenttofacilitateeffectiveengagement(asnotedunderLesson1)?
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4.4Lesson4:Co-producingResources and the Importance of Budgets
Theabilityofco-productionprocessestochangehowresourcesaremanagedandcoordinated,andhowtheydelivermeaningfulchangeforcommunities,wasviewedasakeytestfortheimpactofengagementonCommunityPlans.Thethreecouncilsshowedacommitmenttoinnovationandcreativethinkinginhowresourcescouldalignwithwhatcommunitiessaytheyneedandwant.Forexample,anumberofthecommunityplanningpartnersintheABCareaexpressedinterestinworkingtogethertoplan,designanddeliveraParticipatoryBudgetingprojectbasedonthePublicHealthAgency’sTake5programme.Thisencouragedpeopletotake5stepstobetterwellbeingbyimproving
socialconnections;gettingactive;slowingdownandappreciatingnature;learningnewthings;andsupportingothers.BecauseofCOVID-19,theapproachusedtheCouncil’sCitizenSpacePlatformtoinvolvetheentirecouncilarea.Figure7showsthatTak£500involvedcommunityplanningpartnerspoolingresourcestoaddresstheisolatingeffectsofCOVID-19,andengaginglocalpeopleinsettingpriorities,developingnewinterventions,andallocatingfinanceinanintegratedway.Theapproachconnectedwellbeingoutcomesacrosstheentirecouncilareatoformaco-designed,co-producedandco-deliveredbudgetaryprocess.
ThecommunityplanningteamusedtheestablishmentofaPBnetworktogenerateinterestfromawiderangeofpartners,provideinformationandtrainingandexplorethecreationofonebrandforPBfortheborough.Thenetwork
Figure7:Tak£500–ABC’sParticipatoryBudgetingScheme
39 Working Together for Wellbeing
waswellattendedandcontributedtothebroadmembershipoftheTAK£500PBWorkingGroup,whichhassupersededthenetwork.CommunityPlacesprovidedinformationonthescopeofParticipatoryBudgetingwithincommunityplanningprocesses,thebenefitsofcoordination,andthepracticalaspectsofimplementingsuchaprocess.Thisinvolvedlearningfrompractice;drawingontheexperiencesofParticipatoryBudgetinginyouthservices,policingandhousing;and,finally,establishingthenetworkacrosstheABCCommunityPlanningPartnershiparea.
ThePartnershipinDSDCalsowantedtopilottestaParticipatoryBudgetingProject,focusedonyoungpeople.ThroughtheCarnegieUKwork,CommunityPlacesfacilitatedtheestablishmentoftheYouthCo-DesignPanelandasubsequentseriesofdesignworkshopstotailortheParticipatoryBudgetingprocesstotheirneeds.Youngpeoplesetthethemes,eligibilitycriteriatoassessParticipatoryBudgetingproposals,
timeframesandbrandingaswellasmarketingfortheYOUthMakingitHappenParticipatoryBudgetingprocess.Goingonlineextendedthereachoftheinitiativeandallowedamultimediaapproachtoengagementacrossgeographicareas,especiallywhereyouthparticipationhadbeentraditionallyweak47.Atotalof46initialapplicationsand33videosforshortlistedprojectswerereceived.VideoswereuploadedtotheCouncil’sCitizenSpacesitetoallowanonlinepoll,withpeopleagedbetween12and25yearsaskedtovoteforthethreeprojectstheywantedtoseedeliveredintheirarea.Intotal,842youngpeoplevotedandthewinningprojectsincludeddrama,cultureandarts;improvementstogreenspacesandrivers;fitness,healthandwellbeing;giftingandintergenerationalactivities;andeducationandskills.
47 DerryCityandStrabaneBoroughCouncilYOUth Making It Happen Participatory Budgeting.Availableonlineathttps://growderrystrabane.com/youthpb/
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4.5Lesson5:MakingOutcomesReal
Akeyconcernatastrategicandcouncillevelwasthewayinwhichoutcomeswerealignedwithcommunitypriorities,howengagementshapedtheirdeliveryandhowsuccesswasmeasured–didanoutcome-basedapproachreallymakeadifferencetowellbeing?Attentionwasdrawntoinnovativeinterventionsthataimedtoimprovethelivesofthemostvulnerablegroupsandplaces.Forexample,inScotland,initiativessuchasChildren’sNeighbourhoodsusedaplace-basedapproachtocoordinateinterventionsthataimtoimprovelife-chances,educationoutcomesandfamilycohesion48.
ThePartnershipintheLCCCareaalsotestedtherelationshipbetweenwellbeing,co-productionandcommunityplanningthroughanarea-based
48 Children’sNeighbourhoodsScotland.Availableonlineathttps://childrensneighbourhoods.scot/
approach.TwoDEAswereselectedforpilotLocalityPlans:LisburnSouthandCastlereaghEast–withCommunityPlacesworkingwithcommunityplanningpartnersandofficerstosetoutaprocessforengagement,informingandfacilitatingthediscussionsanddevelopingthePlans.ThePlansaimedtointegrateactionsacrossagenciesandsectorsandshowhowoutcomesintheCommunityPlanneededtobedeliveredlocally,andtheyusedanarea-basedapproachtocommunityengagement.ThisisillustratedinFigure8whichemphasisestheimportanceofLocalActionPlanstobothco-productionanddeliveringwellbeingoutcomes.
ThecoreelementsoftheengagementapproachincludedawarenessraisingworkshopswiththeCVS;briefingandtrainingforstaffinvolvedinassistingwiththeworkshopsontheuseofthePlaceStandardTool;andproactiveoutreachtocommunity,voluntary,charitableandfaithgroupsandlocalcouncillorsincludingencouragementtoparticipateinaseriesofplanningworkshops.
Figure8:LCCCCommunityPlan
41 Working Together for Wellbeing
BaselineindicatorshelpedprofileeachareaandshapeneighbourhoodprioritieswithinthecontextoftheCommunityPlan.Councilofficersformedaprojectteamwhichwasinvolvedinshaping,deliveringandpromotingengagementwithcommunitiesineacharea;communityandfaithgroups;electedmembers;statutoryagenciesontheCPP;andkeydepartmentswithinthecouncil.SkillingupcouncilofficialsinengagementconceptsandworkshopparticipationwasfacilitatedbyCommunityPlaces,butthisdemonstratedtheneedtodevelopcompetenceacrossdepartments,functionsandstafflevels.Twoworkshopsineachareafirstbroughttogethersectors,agenciesandcommunityplanningpartnerstoexplorethedataandsetoutprioritiesforeachneighbourhood;theassetsoftheDEA;andtheissuesandareasforimprovement.Asub-groupofcommunityplanningstatutorypartnersconsideredtheanalysisandprioritydevelopmentissues,whichwerepresentedatthesecondworkshopstowhichallpartnerswereinvitedalongwiththeCVS,11councillorsandcouncilofficers.ThisfocusedongeneratingactionstoaddresstheareasidentifiedforimprovementbasedonthePlaceStandardapproach49.
49 ThePlaceStandardhttps://www.placestandard.scot
ThesecondworkshopineachDEAwasstructuredaroundthe14PlaceStandardthemes,whichinturnalignwiththethemesandoutcomesoftheStrategicCommunityPlan.ThePlaceStandardtechniqueenabledparticipantstodiscussandassesstheirareaandtocollectivelyagreeascoreforeachthemeagainstaratingof1(mostroomforimprovement)and7(leastroomforimprovement).ThePlaceStandardtoolproducesavisualresultandsnapshotoftheprocessandanexamplefromtheLisburnSouthDEAispresentedinFigure9.
Drawingontheoutcomesoftheworkshops,CommunityPlacespreparedaPlanforeachDEAsettingoutthevisionandoutcomesofthecouncil-widestrategicCommunityPlanandhowitlinkswithDEALocalityPlans,andtheengagementprocessusedtoinformanddevelopthePlan.AnactionplanforfurtherconsultationandaprocessofadoptionwithinthecontextoftheCommunityPlanandtheCPPwerethenmappedoutfortheCouncilandthetwoneighbourhoods.
Figure9:LisburnSouthDEAPlaceStandardAssessment
42 Working Together for Wellbeing
4.6Lesson6:SupportingSoftand Formal Relationships
Anumberofrespondentsatthelearningworkshophighlightedtheimportanceofinterpersonalcontactandinformalnetworksinmakingco-productionandengagementworkinpractice.Theynotedhowcommunitiesofpracticehavedevelopedinwhichgroupsofpeopleacrosssectors,organisationsandgeographicareasaswellasatdifferentlevelsworktogetheronacommonaim(andevenonformaloutcomes).Eachbroughtspecificexpertise,resourcesandorganisationalbuy-inandreliedontrustandmutualrespecttobuildfromintersectoralrelationships.However,theseareoftenunderminedbychangesinstaff,organisationalprioritiesorreductionsinbudgets.CarnegieUKhasresearchedtheimportanceofinformalnetworks,tacticalknowledgeandtrustasbuildingblocksofeffectiveinter-agencyworking50.Thesenetworksneedsupporttogrow,consolidateanddevelopoutsidetheformal
50 IlonaHaslewood(2021)A review of the evidence on developing and supporting policy and practice networks.Availableonlineatwww.carnegieuktrust.org.uk
structuresofcommunityplanningandhowitisdeliveredthroughthecouncilcommitteesandworkinggroups.Theregulatedandrulesboundculturesoflocalgovernment(andotherbureaucracies)isimportantbuttheseinformalrelationalnetworkshaveenabledpeoplefromacrosssectorstoengagewitheachotherinaneverydaybutdeeplyproductivesense.
Runningparallelwithformalcommunityplanningstructurescouldbeaninvestmentinnetworksorganisedaroundgeographicareas,sectoralthemesorpriorityactionssetoutinthePlan.ThisworkedwellviaareabasedandsectoralstrategiesorwhereParticipatoryBudgetingbroughtarangeofpartnerstogetheronaparticularobjective.TheToolkitemphasisedtheneedtodevelopinterdependency,trustanddurablerelationshipsandnetworksthatoperatemoreflexiblyoutsidepartnershipstructuresandoperatingsystems,andenablemomentumtobemaintained,especiallyacrossthepeopleactivelyinvolvedindelivery.Tobeclear,thenetworkwouldbecomplementarytotheCommunityPlanningPartnershipandwouldbeusedbythepartnersonfocusedareas(sectors,deliveryprojects,financeandsoon)wheretheyaddvaluetoco-productionandengagement.
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4.7 EnablingaNewApproachtoCo-production
Theprogrammeofworkwiththethreecouncils,seminarsandthelearningworkshoprevealedanumberofrelatedprioritiesinconnectingco-productiontothewellbeingagendawithincommunityplanning:
• Theprinciplesandpracticeofempowermentneedtobeunderstood,agreedandactedonbypartnersasthebasisforeffectivecommunityplanning.
• Thismeansthatthecommunityhasthepowertoinfluence;makeandtakedecisions;andbeabletoholdtheCommunityPlantoaccount(andbeheldaccountable)fordeliveringagreedoutcomes.
• Todothis,structuresofdecisionmakingandespeciallytheCommunityPlanningPartnershipneedstooperateinaninclusiveandintegratedwaythatiscommittedtoco-productioninthedesign,deliveryandevaluationofprogrammes.
• Budgetsthereforeneedtobealignedandintegratedtodeliverpriorityoutcomes,andmanagedinawaythatempowersthecommunitytoallocateresources.
• Thisrequirescarefulselection,designandimplementationofagreedoutcomesthatneedtobealignedwithresponsibilities(acrossthepublic,privateandcommunityandvoluntarysectors)todeliverwellbeingforthewholecommunity.
• Meaningfulcollaborationinvolvescommunication,transparencyandtrustinthewayinwhichCommunityPlansaredesigned,deliveredandevaluated.Resources,timeandhonestcommitmentareneededtoensurethatthisco-productionprocessiscarriedoutefficientlyandeffectively.
• Thisinturnwillrequireleadership,newskillsanddifferentwaysofworkingtoensurethatthepartnerscandeliveragenuinelyintersectoral,organisational,andcross-practitionerapproachtocommunityplanning.
• Thedifferencethismakestopeople’slivesneedstobeclearinthewayinwhichprogresstowardsoutcomesismeasured,andallthepartners,includingthecommunityandvoluntarysector,needtobeheldaccountableforthedeliveryofsocialwellbeinginthecouncilarea.
• Engagementandco-productionarecontinuousprocessesthatneedtobenurturedanddevelopedinordertobuildmomentumincommunityplanningacrosscouncilareas.
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ThischapterreportsontheSharedLeadershipProgrammedevelopedanddeliveredbytheCentreforEffectiveServices.TheagreedpurposeoftheSharedLeadershipProgrammewastoincreaseimpactwithinindividualCPPsandencouragecollaborationandthesharingofpower,resourcesanddecisionmakingaswellasimpactingoncommunityplanningpracticeacrossNorthernIreland.
Themethodologyissharedinthischapter,aswellasperceptionsofthedifferencetheprogrammehasmade.ThischapteralsocapturestheperceptionsofparticipantsandwiderstakeholdersontheprogressmadeinimplementingcommunityplanninginNorthernIreland.
5.1 TheCESSharedLeadershipProgramme Approach
ThissectiondescribestwophasesthatformedtheSharedLeadershipProgramme:theworkundertakenpriortoCOVID-19,andtherevisedapproachdevelopedfollowingtheonsetofthepandemic.Theapproachissharedhereforlearningandtoenableittobereplicated.
CEScommencedaco-designprocesstodeveloptheprogrammeinJuly2019,engagingwiththeprogrammeleadsineachcouncil.MeetingswerealsoheldwiththosedeliveringotherelementsofthewiderEmbeddingWellbeingprogrammetoensurealignmentandcomplementarityacrossdifferentprogrammestrands.Theseearlyplansincluded:
• Co-designingsharedleadershipindicatorswiththeparticipatingcouncils.Theseweretobeusedasapre-programmeself-assessmentwhichwouldberepeatedattheendoftheprogrammeaspartoftheevaluationprocess.
• Co-designingaworkshoptodeveloptheinitialthinkingintheoriginalproposalintoatailoredprogrammefortheCPPs.ThiswasheldinNovember2019.
5.WhatweLearntaboutShared Leadership
ByMajellaMcCloskey,AnneMcMurrayandMelanieStone, Centre for Effective Services
SharedLeadershipwasidentifiedbytheprojectpartnersasoneofthekeyareasforactivityduringtheEmbeddingWellbeingprogramme.AprogrammewasdevelopedbytheCentreforEffectiveServicestosupportSharedLeadership.Similartoourotherstrandsofwork,thisprogrammewasaffectedbyCOVID-19andwentthroughaprocessofre-designtoenableonlinedelivery.
45 Working Together for Wellbeing
Adraftprogrammewasdevelopedwithplanstocommenceinspring2020.HoweverwiththeonsetoftheCOVID-19pandemic,byMarch2020itwasclearthattheSharedLeadershipProgrammecouldnotrunasitwasoriginallyintended.Thisledtothedevelopmentofanewapproachtodistilthelearningaboutsharedleadershipduringthiscrisisasitwasbeingexperienced.
Earlyresearchindicatedthatthelevelofsupporttoprocessandreflectonwhatwashappeningduringthepandemicwouldincreasethepotentialbenefitsofthefuturerecoveryphase5152.
TotestouttheviewsoftheCPPs,CESfacilitatedaSharedLeadershipactionlearningonlinesessionon14May2020.ThiswasanopportunityfortheCPPstoembedleadershippracticesthathadworkedintheearlystageofthepandemicandrecognisethecollaborativeeffortsthathadbeendemonstrated.TheoutputsfromthissessionprovidedthecontentanddesignofthesubsequentprogrammethatemergedthroughthecrisisandwhichwasdeliveredfromSeptember2020toJanuary2021.
TheprogrammeredesigncomprisedaseriesofstylewebinarsessionsforallthreeCPPs,followedbyactionlearningsessionsafewweekslaterprovidedindividuallytoeachCPPteam.
Actionlearning53isamethodofcollaborativelearningwhereasmallgroupofparticipants(an‘actionlearningset’)meetsregularlytoreflectonrealworkissues.Itsbasicphilosophyisthatthemosteffectivelearningtakesplacewhendealingwithrealproblemstosolve.Actionlearningenhancesthewayinwhichpeoplelearn,
51 Fraham,J.Leading in Truly Uncertain Times(2020).Availableonlineathttps://drjenfrahm.com/leading-uncertain-times/
52 Hougard.R,Carter.J,andMohan.M.(2020)Build Your Resilience in the Face of a Crisis,HarvardBusinessReviewMarch2020
53 Revans,R.(2011)The ABC of Action Learning.Routledge.Availableonlineathttps://www.actionlearningassociates.co.uk/action-learning/reg-revans/
bydrawingonactualexperiencetomakesenseofchallengesanddevelopeffectivestrategiesforimplementation.Itseffectivenesscanbemeasuredthroughpracticalresultsanditsapplicationtoreallifechallenges.
Basedonfeedbackandredesignwithparticipatingorganisations,itwasagreedtorunthewebinarseriesonthethemesof:
1. Communitywellbeing2. Addressinginequalities3. Partneringwithcommunities4. Partneringwithgovernment.
Theformatconsistedof90-minuteonlinesessionsusingZoomBusinessVersion,withinvited‘thoughtleaders’,policyleadsandcontributionsfromCPPmembers.Theleadershipassociatechairedthesessionsandmanagedtheinteractionandplenarysessions,supportedbyCEStechnicallywhoalsorecordedthecontent.Followingeachwebinar,aresourcepacksummarisingtheeventandsharingthekeythemes,ideasandusefulinformationwasproduced.ThiswascirculatedtoeachCPPtoinformtheiractionlearningsession.
AspartoftheSharedLeadershipProgrammedesign,theactionlearningsessionshadthedualpurposeofdevelopingteamworkingthroughjointproblemsolving.Table5showstheoverallprogrammestructure,datesandcontributorsfromavarietyofperspectivesincludingCarnegieUK,academia,governmentdepartmentsandthevoluntarysector,aswellasthethreecontributingCPPs.
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Figure10:RevisedSharedLeadershipProgramme
CarnegieSharedLeadershipProgramme
Phase 1Pre COVID-19Codesignprogrammeengagementandplanning
Phase 3•ExternalThoughtLeaders•Showcasingpractice•Reflectionandapplication
Programme learning
Action learning
Phase 2COVID-19 CrisisListeningeventFundamentalredesign•virtualdelivery•relevanttopics•actionlearning•crossfertilization
Webinar
Webinar
Webinar
Showcase Event
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TheactionlearningsessionsprovidedtheCPPswiththeopportunitytoreflectontherelevanceofthetopictotheirwork,problemsolve,andapplythelearningtotheirworktogether.
TheprogrammemethodologyrepresentstheexperienceoftheCPPsduring2019–2021.Thestructured‘steadystate’planwasupendedbytheonsetofCOVID-19.TheCESresponsewiththeCPPpartnerswasnottomothballandwaittillthingsreturnedtonormalbuttopivotand
pragmaticallymakerapidchanges,learning‘ontherun’howtodelivertheoutcomesinacompletelydifferentway.Therewasalottobelearnedfromthisapproach.
Inadditiontotheworkcarriedoutacrossallthreecouncils,ArmaghCity,BanbridgeandCraigavonBoroughCouncilalsoinvestedtheirbespokewellbeingbudgetonsharedleadershiptodeepentheirpractice.TheirworkisreportedinBox7.
Table5:RevisedSharedLeadershipProgramme
Topic Date
Webinaronwellbeing 14September2020
Action learning sessionsfortheteamsfromeachCPP1. Howimportantaconceptiswellbeingforyourwork?2. Whataspectsofwell-beingneedmostattentioninyourcommunity?3. Inwhatlowcost/nocostwayscanyourpartnershipincreasecommunity
wellbeing?4. Howarethecommunitypartnershipscommunicatingtothepoliticiansandthe
publicabout‘wellbeing’?
22September2020
Webinaronhowwecanaddressinequalities 29September2020
Action learning sessionsfortheteamsfromeachCPP1. Howwelldoyouunderstandthecauseofinequalitiesinyourarea?2. Howcanyouworkbettertogethertoreducetheunfairandavoidable
differencesinhealthoutcomes?3. Inwhatlowcost/nocostwayscanyourpartnershipreduceinequalities?4. Howarethecommunitypartnershipscommunicatingtothepoliticiansandthe
publicaboutinequalitiesatthistime?
15October2020
Webinaronpartneringwithcommunitiesforrecovery 23October2020
Webinaronpartneringwithgovernmentdepartmentsforcommunityplanning 26November2020
Action learning sessions fortheteamsfromeachCPP1. Howcanyoupartnermoreeffectivelywithcentralgovernment?2. Howwillyouinfluencethewayinwhichcommunityplanninggoesforwardin
thenext3years?3. WhatdifferencedoyounoticeinhowyoushareleadershipinDecember2020
comparedtoDecember2019?
15December2020
Implications for the future of community planning Thelearningoutcomesfromthissessionwerethatparticipantswereableto:1. Reflectonandtransfertheirlearningacrossthethreepartnerships2. Planhowtoprogresscommunityplanningin20213. Planthenextsixmonthsoftheirdevelopment
13January2021
“Connected”isthefirstCommunityPlanfortheArmaghCity,BanbridgeandCraigavonBoroughwithaclearfocusondeliveringsustainableoutcomesthatimprovethesocial,economicandenvironmentalwell-beingoftheBorough’speopleandplace.
Inresponsetothepandemic,ABC’sCommunityPlanningPartnershipcametogethertodevelopa12-monthCOVID-19ResponseandRecoveryPlan(theCOVID-19Plan)toreducetheimpactofthevirusacrosstheBorough.Anintensive,community-focusedengagementandresearchexerciseidentifiedthePlan’s5mainpriorityareasand28collaborativeactionstomaximisethePartnership’sresponsetothecommunity’sexistingandemergingneeds,andtostrengthentheirpartnershipworkinganddelivery.
Inessence,theProgrammeprovidesthe‘backatbase’tangibleandstrategicsupporttoleadersastheydriveforwardthedeliveryofbetteroutcomesthatrespondtothecommunity’schangingwellbeingneeds,aspirationsandexpectationsincollaborationwithothersacrossallsectorsandpolicyareas.
TheoverarchingaimoftheProgrammeistobuildastrongcadreofconnected,confident,collaborativeandresilientleadersofpositivechange.Itoperatesacross3interlinkedlevels:network,groupandproject.
1. TheABCPeerNetwork(thePeerNetwork)isacollectivespacethatisopentoeveryoneinvolveddirectlyandindirectlyindeliveringtheCOVID-19Planacrossorganisations,sectorsandpolicyareastocometogether.
2. ParticipationinthePlanningGroupisbyself-selectionfollowinganinviteissuedtoallPeerNetworkmemberswishingtojoinasmallgroupresponsibleforconveningandchairingthePeerNetworkmeetings.
3. TheCOVID-19Planincorporates5prioritiesandsome28collaborativeactionsthatcollectivelycontributetotheBorough’sresponseandrecoveryfromthepandemicoverthenextyear.
TheProgrammeisrealisticandopenabouttheleadershipchallengesandcomplexitiesthatcross-sectoralandcollaborativeworkingpresents.Italsorecognisestherealshortandlong-termbenefitstobeaccruedfromtheprovisionofdeliberative,strategicandadaptiveone-to-oneandgroup-basedapproachesthattogetherhelptoreleasethepotentialofsharedleadershipinpractice.
Outcomesandlearning:TheProgrammehasempoweredindividualsandprovidedthemwithopportunitiestoexerciseleadershiprolesinthePeerNetwork,andwithintheirrespectiveprojectsandareasofexpertise.Participantshavegrowninself-confidenceandintheirreadinesstoadoptandembracethesharedleadershiproletobetterrealisecommunitywellbeingoutcomes.Forsome,thishasmeantsteppingoutsidetheircomfortzonetochairthePeerNetwork,andforothersithasmeantleadingoutonaninitiativewheretheydidnothavedirectauthorityforthedeliveryoftheproject.
Box7:ABC:SharedLeadershipinPractice
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Connectionsandnetworking:ThePeerNetworkprovidedasafe,supportive,creativespacewherepartnerscouldmeetup,gettoknoweachotherbetter,andbuildtheirsenseoftrustandsolidarity.Ithasprovedvaluableandnecessaryinbuildingtheconnectednessandresiliencethatenablesleaderstobettercoordinateanddevelopideas.
Co-designandshareddecisions:Partnershavedemonstratedtheopennessandcapabilitytoworkcollaborativelytoco-design,developandimplementnewandmorecoordinatedapproachestotheirwork,andtonegotiatethesharingofskillsets,decision-makingandinformationwithothersacrossdifferentorganisationsandsectors.Thishasbeenparticularlyhelpfulinunlockingcreativityandpromotingawillingnesstoworktogetherinnew
waystodeliverbetteroutcomesinareasthathavebeenhistoricallydifficulttounpackandrespondto.
Poolingandmaximisingresources:TheProgrammeparticipantshavedemonstratedagrowinglevelofopennessandtrustineachothertosharefinancial,humanandin-kindresourcesacrosstheirrespectiveorganisationsandsectors,andalsotomakejointfundingsubmissionstodepartmentalCOVID-19programmestodeliverbetteroutcomestogether.
ABCCommunityPlanningPartnershipalsorantwoadditionalsharedleadershipprogrammes,onewiththeCommunity&VoluntarySectorPanelandanotherwithactionleadsfromacrossthepartnership.
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50 Working Together for Wellbeing
5.2DevelopmentofStrategicIndicators on the Success of Shared Leadership
Itwasalwaysintendedthatlearningaboutthisprogrammewouldbecapturedandsharedforwideruseacrosscommunityplanningandotherwellbeingandpublicservicereforminitiatives.Likeotheraspectsoftheprogramme,theoriginallearningplanwasimpactedbythepandemicandtheresultingneedtoredesignandpivotthedeliveryplatformandprocess.CESdidcontinuetogatherlearningacrossallelementsofdelivery,includingthecollationandsharingofresourcesandlearningfromeachelementoftheprogrammeforparticipatingteams.
Theapproachtogatheringthelearningincludedthefollowingmethods:
• Theco-designandperiodicimplementationofasetofindicatorsofsharedleadershipincommunityplanning
• Designandadministrationofasurvey• Undertakingofinterviewsandfocusgroups
withparticipantsandotherkeystakeholders• WorkshopwithCPPmanagerstoconsider
keyissuesemergingfromthelearningandproposerecommendations.
TheCESteamco-designedthesetofindicatorsfortheSharedLeadershipProgramme.Theseweredevelopedatthepointwhentheprogrammewasinitiated,basedonareviewofavailableevidenceandaco-designworkshopwithprogrammeparticipants.CESthencollecteddatafromparticipantsatthebeginningandendoftheprogrammeandreviewedchangesinthedata,invitingparticipantstoscoreindicatorsasfollows:
• 0ifNotinplace• 1ifBeginning• 2ifProgressing• 3ifAchieved.
WewereawarethatthepandemichadcausedsignificantshiftsforCommunityPlanningPartnerships,aspartnershipssteppedintorespondtoneedsinthecommunity,engagedinregularcrisisplanningorworkedtogethertomeetneedsontheground.Thisshiftedperceptionsandacceleratedrelationshipbuildinginwaysthatwerenotanticipated.Itisdifficulttodrawconcreteconclusionsfromthechangesinscoresnotedbelow.Inaddition,thenumberofrespondentsatthefinalstageofdatacollectionwaslowerthanatotherstages.However,thedataisaninteresting‘pointintime’scoreforthethreeCPPs.
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Table6providesinformationonthebaselineandpost-programmerankingsfortheindicators.Interestingly,theindicatorthathadthelargestaveragedifferenceinindicatorscoresfrom2019to2021was“Ownershipofcommunityplanningasawayofworking”(1.17),whichmayreflecttheengagementthathappenedasaresultofrespondingtogethertothecrisis.
Overall,thelowestscoredindicatoraveragedforthethreeCommunityPlanningPartnerships(2021)was“Politicalenergyandsupport”(1.32),whereasthehighestwas“Infrastructureinplacetodelivercommunityplanning”(2.58),whichmayindicateappreciationfortheteamandpartnershiparrangementsinplace.
Table6:AverageScores–StrategicIndicatorsofCommunityPlanning(rankedbychange)
Co-designstage Nov 2019
Pre-programmeengagement
sessions Spring 2020
Programme closure
Jan/Feb 2021
Change
Ownershipofcommunityplanningasawayofworking
1 1.77 2.17 +1.17
Resourcestodelivercommunityplanning 0.83 1.42 1.61 +0.78
Infrastructureinplacetodelivercommunityplanning
1.83 1.92 2.58 +0.75
Publicseeingbenefits 1 1.08 1.63 +0.63
Partnersseeingbenefits 1.6 1.70 2.22 +0.62
Evidenceofreconfiguration 1 1.83 1.61 +0.61
Evidenceofsharing 1.5 2.36 2.04 +0.54
ChairmanagingtheCPPbusinessbeyondmeetings
2 2.11 2.17 +0.17
Implementationplansbeingexpedited 2 1.77 2.14 +0.14
Politicalenergyandsupport 1.3 1.90 1.32 +0.02
Accountabilityandreviewmechanismsinplaceandmeaningful
2 1.95 1.97 -0.03
CPPmembershavedecisionmakingauthority 2.3 1.93 1.94 -0.36
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5.3RoleofandRelationshipswith Central Government
TherelationshipbetweencentralgovernmentandCommunityPlanningPartnershipsarosethroughouttheprogrammeandwasafocusofonemodule.Thereappearstobeseveralkeyfactorsatplayhere,namely:
• HowcentralgovernmentdepartmentsarestructuredtocollaboratewitheachotheronissuesofcommonconcernorinteresttoCPPs.
• CPPparticipantsreportedaperceivedinternaldisconnectbetweenseniorandmiddlegradecivilservantsinregardtocommitmentsandundertakingswithCPPs.ThisisparticularlyrelatedtohowinformationissharedwithindepartmentssothatCPPsexperienceaconsistentapproachfromdepartmentsonCPPissues.
• Howcommunityplanningisreflectedincentralgovernmentplanningthroughtheallocationofresources,sharedaccountability,crosscuttinggovernance,coordinationofpartnerinvolvementandthepositioningofCPPswithintheProgrammeforGovernment.
Regardingtheperceived“disconnect”betweencentralgovernmentdepartmentsonissuesofcommoninterest,participantscitedthattherewas“lessunderstandingofhoweachother[departments]work”andreporteda“poorcollaborativerelationshipbetweengovernmentdepartments”,withtheproposalforcentralgovernmenttocoalescedifferently:“Lookatissuesandthemesratherthanfocusingonthedepartments”.
Participantswereenthusiasticaboutthepromiseofcommunityplanningandfortheapproachtobesupportedandutilisedmorewidely:“Thereisaneed[for]thepolicyimperativetoworkinacommunityplanningwayacrossallsectorsandorganisations”.However,participantswidelyexpressedaviewthatinvolvementfrom
statutorypartnersneededtobeembeddedinthedaytodayoperationsandworkplansofeachorganisation,thatitis“partnershipsandactiongroupswhoareresponsibleforimplementingcommunityplanningmorethancentralgovernment”andthatitshouldnotbelefttotheenthusiasmofindividualsororganisations,butratherorganisedthroughcentralgovernment:“Communityplanningneedstoplayastrongerroleinday[sic]jobswhichcanbepushedbycentralgovernment”.
TheProgrammeforGovernmentwascitedasanimportantvehicleforasharedvision,coordinationandplanninginNorthernIreland.TherewasdisappointmentthatcommunityplanningdidnotfeatureasavaluableimplementationmechanismfortheProgrammeforGovernment,e.g.“LearningfromsharedleadershiponcommunityplanningshouldbeembeddedintheProgrammeforGovernment”and“TheProgrammeforGovernmentisanimportantenableracrossallsectorsinNorthernIrelandbutcommunityplanninghassufferedbynotbeingincluded”.ItwassuggestedthattheProgrammeforGovernmentneededabottom-upapproach,lookingatsharedleadershipatlocalleveltofindmethodsthatworkinlocalcommunities.
TherewasalsoarecognitionofthepotentialsavingsemergingfromCPPs“usingmoneyefficientlybyworkingtogether”.TheCPPs’understandingofwhatisgoingonatalocallevelwasalsocitedasvaluabletocentralgovernment,asthereisa“needtounderstandissuesatlocalleveltobefilteredupforproblemstobeunderstoodanddealtwith”.Therewasaconcernaboutcentralgovernance,especiallyaschurninCPPrepresentationbecomesmorewidespread,witharesultantlossofknowledgeandrelationships.ItwassuggestedthattheDepartmentforCommunities“lookatinfrastructuralchangesinseniorlevelinvolvementwithinstatutoryorganisationsandagencies,andmakechangestoimplementcommunityplanningfromtopdown”,perhapsthroughsomenewcentralcoordinationofdepartmentalinvolvement.
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5.4 RelationshipswithinCPPsThisthemeofbuildingrelationshipswasalsoreflectedwhenparticipantstalkedabouttheirownCPP,wheretheywerekeentounderstandtheroleandscopeofeachother’sorganisationsandhowtheycouldeachcontributetotheCommunityPlan,aswellasensuringadequatesharingofaccountabilityandresourcing.Buildingstrongerrelationshipswasakeymessage,withsuggestionsthattherewasa“lackofawarenessaboutotherorganisations’roles,resourcesandserviceproposals”,andthatitwouldbevaluabletocreate“aforumtounderstandotherorganisations”.ExistingeffortstoshareunderstandingwithinCPPswasappreciated:“Explainingrolesatmeetingstoothermemberstohelpsharedknowledgeonhowcommunityplanningcancollaborativelywork”;and“[we]needthistobecontinuedeverycoupleofmonthsfornewmemberswhojointhepartnership”.
Itwasstatedinseveraldifferentengagementsthattherearecoreorganisationswhichhavesuccessfullytakenworkforwardtogether,whereasothershaveyettosuccessfullyengage:“Therearekeyorganisationsthatmakeanimportantcontribution”.Itwasalsosuggestedthatgreatersharedengagementwouldleadtoa“strongersenseofjointaccountabilityandresponsibilityforcommunity”.ThevalueoftheserelationshipswasclearlyunderstoodasimportanttoCPPgovernance:“thereisaneedfortrustingrelationshipsthatadheretopoliciessuchassafeguarding”;and“thereisaneedforconfidentialityforcommunityplanning”.
Whilstthereisalegislativeimperativeforstatutorybodiestoengageincommunityplanning,manyparticipantsnotedthatcurrentCPPinvolvementisnotconsideredpartofnormaljobroles,leadingtoseveralrespondentsaskingtohavecommunityplanningasameasurablepartofeveryone’sjob,ratherthanforminganadditionalpieceofwork:“Communityplanningshouldn’tbeanextrajob–itshouldbecarriedoutaspartofcurrentroles”;and“CommunityPlansshouldbereflectedincorporateplans[orthoseofparticipatingagencies]tohelpitfilterthroughdepartmentsintomoreseniorlevelsthanHeadofCommunityPlanning”.
ItwasalsoacknowledgedthatthelocalauthoritiescarrythegreatestburdenoforganisingandresourcingtheCPP:“Councilisatheartofcommunityplanning”;“Council[is]expectedtodomostofthework”.Someconsideredthatgovernmenthadnotfullyengagedwithlocalgovernmentandstatutorybodiesonhowcommunityplanningshouldbeimplemented,withaviewexpressedthatcommunityplanninghadbeen“thrownonthedeskoflocalgovernment”.Aconcernaboutalackofadequateresourceswasalsoexpressed.Intervieweesalsothoughtthemomenthadcomeforinnovationinpooledorparticipativebudgets:“[we]needtoovercomeworryabouthowotherpeopleareusingourbudget–sharedresource,sharedmoney,sharedassetsforallofthecommunity”;and“[we]needtoshareassets–physicalassetsandpeopleastheyare[forthe]community”.
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Theroleofthecommunityandvoluntarysectorwasanothersignificanttopicfordiscussionduringtheprogramme,aswellasinpostprogrammelearning.Therewasarecognitionthatthesectorcanoffer‘ontheground’engagementanddeliveryaswellasnewinnovativemodelsofpractice,e.g.“[InternationalVoluntaryOrganisations]haveinnovativemodelsandchallengestatutorypractice”.However,therearestillissuestoovercomeinrelationtothecommunityandvoluntarysector’spositioninCPPssuchas“lackofawarenessofwhatcommunityisandwhatitmeans”aswellasthe“importanceoflisteningtowhatthecommunitywants”.
Ithasalsobeennotedthatvoluntaryandcommunityorganisationsarenotreflectedinthelegislationinthesamewayasstatutorypartners.Thishasledtoasenseofanunevenplayingfield,withacallfor“moreengagementwiththecommunityandvoluntarysector”madeinseveraldiscussions.Participantsalsosharedthe“importanceofbringingassets,e.g.individualsandsharedexpertise,tomeettheneedsofthecommunity”.
Concernswereexpressedthatseveralyearsonfromcommencementofcommunityplanning,somekeyindividualswouldbemovingonintonewrolesorintoretirement,creatingissuesofsuccessionplanning,knowledgemanagementandrelationshipbuilding:“steppingdownwillleaveusunsureifthenextpersonwillmaintaincommunitydutiesifitisnotspecifiedintheirjobdescription”;and“relationshipsareimpactedthroughretirement,promotionsetc”.ThevalueofgoodrelationshipswithinCPPstoenablejointworkingandactionwasstressedrepeatedly:“Communityplanningandengagementworkdependsontheindividuals’interests”;and“personalrelationshipsbuildmorethanrelationshipswithorganisations”.
5.5 RelationshipsacrossCPPsParticipantsrelatedtheneedtocontinuetobuildrelationshipsandsharelearningacrossallCPPs,statingtherewasa“needformorecrosspartnershipworking”,andthattheywere,forexample,“unsurewhotheotherchairsare”,aswellasuncertaintyifothercouncilsandgroupmemberswere“onthesamepageorwheretheyareat”.Therewasacallfor“morecollaborationwiththeotherelevenpartnershipstohelpreduceoverlapandduplication”aswellasacommentonthe“importanceofsharingknowledgetoimproveoutcomeswithotherpartnerstoworkcollaboratively”.
ParticipantsrecognisedthevalueoftheSharedLeadershipprogrammeinthisregard:“thisprogrammehashelpedbringpartnershipstogether”.
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5.6KeyLearningandActionsfor Shared Leadership
Participantshavereinforcedtheimportanceofsharingknowledgewithallpartnerstoimproveoutcomesandworkcollaboratively.ThisincludeswithinorganisationsandCPPs,andregionallyacrossallCPPsasdepictedinFigure11below.
Participantswanttobuildinmechanismstobetterunderstandtherangeofpartnershiporganisationsandtheservicestheyprovide,aswellastheirperceptionandpositiononcommunityplanning.Thepotentialtobuildawarenessofwhatotherpartnersaredoingcanbringconsistencyandefficiencyacrosspartnerships.Thisshouldbedeliveredthroughworkshops,regular‘special’meetings(every12-18months)andforums.TheSharedLeadershipProgrammehasbeenavaluablestarttobuildingcollaborativeworkingbutshouldbedeveloped.
Whilstofferinginsightfulfeedbackonthedeliveryandcontentoftheprogramme,participantsalsoproposedthatthisformatofprogrammehasthepotentialtosupporttheimplementationofcommunityplanningmorebroadly.Ablendedoronlineformat,togetherwithaco-designedprogrammeandtheopportunitytoprocesscontentthroughactionlearningorteamcoachingwouldbeofvalue.
ThereisaneedforfurthertestingandrefinementofthestrategicindicatorsdevelopedduringtheSharedLeadershipProgramme.OngoingbenchmarkingandspacefordiscussionareareasthatneedgreaterattentionacrossCPPs.
Therewasalsoarequestthatthisprogrammefeedinto‘sharedleadership’thinkingatthehighestlevelsofpublicadministrationinNorthernIreland,foradoptionandimplementationthroughalldepartmentsandpublicbodies.
Figure11:RelationshipbasedoutcomeswithinandacrossCPPs
Across CPPs
CPP Chairs
Within my CPP
CPP relationships within my organisation
or department
CPP chairs are being supported and getting feedback within their CPP. CPP chairs are coming together to share learning and experience at a
regional level.
CPPs are aware of the activities of other CPPs. Learning about successes and failures are shared across CPPs. Learning is being brought together and shared regionally.
We know who’s involved from my organisation and across what CPPs. We are coming together to share our purpose and learning. CPP is part of our day job and the organisational plan. We are acting consistently across levels of seniority and across CPPs.
I know who the other organisations are. We understand each other’s roles. We are able to plan and hold good meetings where we build relationships
and tackle issues. We have a clear, achievable focus and a measurable, evidence informed plan.
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6.1 TheUseofDataandEvidence
Arepeatingthemeduringthepeer-to-peerlearningeventswastheimportanceofdataandevidencefortheplanningprocess.Itwasacknowledgedduringthesessionsthatobtaininggoodqualitymonitoringdatawhichdemonstrateswherechangehasoccurredischallenging.NISRAwasseenashavingakeyroleinthisregard.
TherehasbeensignificantinvestmentintheLabourForceSurveyandSafeCommunitySurveywhichinvolveddoublingtheirsamplesizesduringtheperiodthatthisprogrammewasinplace.ThisinvestmentrelatedtotheProgrammeforGovernmentrequirementforreducedsamplingerrorinpopulationindicators.Thishasprovidedreliable,high-qualitystatisticsatlocalgovernmentlevelforimportantindicatorssuchaseconomicinactivity,employment,victimsofcrime,workforcequalifications,underemploymentandlifesatisfaction.TheLabourForceSurveyisparticularlyimportantforlocalgovernment.AttendeeswerealsosignpostedtothefreeNorthernIrelandNeighbourhoodInformationServiceworkshopswhichprovideguidanceandcanhelpwith
developingtheskillsrequiredtoallowtheCommunityPlanningPartnershipstoidentifywhatdatatheyarelookingfor.
AnexternalspeakerfromNESTA,TomSymons,providedinsightbasedontheirownexperienceofdataprogrammes.Theissuesinvolvedinlocalgovernmentuseofdatacould,intheirview,besummarisedas:
• Lackofseniorleadershipsupport• Datasharing,withdataoftennotbeingatthe
rightlevelforeffectiveuse,orpartnersbeingunwillingorunabletosharetheirdata
• Dataquality:Thereisaneedtodemonstratethevalueofgoodqualitydataandshowthoseresponsibletheimplicationsintermsoftheaccuracyoftheirdecision-making.
ThroughouttheEmbeddingWellbeinginNorthernIrelandprogramme,weobserveddifficultiesinaccessingqualityandtimelylocaldata.TheNISRAstatisticianswhoworkedwithlocalgovernment(onacommissionedbasis)werevaluedbytheCommunityPlanningteamsbutthemodelprovedunsustainableparticularlyduetotheimpactofCOVID-19.Giventhelackofresourceavailableatlocalgovernmentlevelforstatisticians,ourviewatCarnegieUKhasbeen
6.WhatweLearntfrom Peer-to-PeerLearning
Fromtheoutsetoftheproject,thethreelocalauthoritypartnerswerecommittedtosharingtheirlearningandexperienceswiththewiderCommunityPlanningnetworkinNorthernIreland.Itwasacommitmentthatwastakenveryseriouslyandactionedthroughparticipationinpeer-to-peerlearningandongoingcommunicationthroughtheirownofficernetworks.
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thatthereisashortageofskillavailablelocallytosourceandtailortheavailabledatatotheneedsoftheCommunityPlanningPartnership.
Afurtherissuerelatestohowwellbeingdataiscollatedtoimprovedecisionmaking.Analysisoftenpresentsdataindifferentcategoriesandunits.Wewerepleasedtobeabletosupport
theDerryCityandStrabaneDistrictCouncilNaturalCapitalAccount(seeBox8).Naturalcapitalaccountingisanapproachtoestimatingtheeconomicbenefitsprovidedbygreenspaces,particularlyforpublichealthandwellbeing.ANaturalCapitalAccount(NCA)canhelpinformandimprovedecision-makingbyframingpublicgreenandbluespacesaseconomicassets.
Box8:NaturalCapitalAccount:DerryCityandStrabaneDistrictCouncil
TheNCAwasdevelopedbyVividEconomics,incoproductionwithDerryCityandStrabaneDistrictCouncil(DCSDC)anditsGreenInfrastructure(GI)Stakeholders,whichformpartoftheCommunityPlanningPartnership.
Naturalcapitaldescribescomponentsofthenaturalenvironment(includinggreenspaces)thatprovideeconomicbenefitsforpeople.Thesebenefitscanincludecleanerairandwater,improvedphysicalhealth,mentalhealthandwellbeing,carbonstorage,temperatureregulationandfloodriskregulation.
TheNCAassignsamonetaryvaluetokeyservicesprovidedbygreenspaces.Thismakesiteasiertocomparebenefitswithongoingspending,investmentandwithspendingonotherpublicservices.Withoutsuchanaccount,thebenefitsandvalueformoneyareseldomexplicit.
Wefoundthat:
• DerryCityandStrabaneDistrictCouncilsuppliesmorethan£75millioninbenefitstoresidentseachyearthroughits223greenspaces.
• Greenspaceswillprovide£1billioninbenefitsoverthelifetimeofDerryCityandStrabaneDistrictCouncil’sGreenInfrastructure(GI)Plan(2019-2032).Thisvaluecouldincreaseifparksareenhancedtoencouragemore,longerandactivevisits.
• TherearemorethanfivemillionvisitstoDerryandStrabanerecreationalgreenspaceseachyear.Visitorsbenefitfrommentalwellbeingandphysicalhealthimprovements.ThetownofStrabaneandnon-urbanareasoftheregionhavefewergreenspaceoptionscomparedtoresidentsinDerryCity,butthiscouldincreaseifthestudywereextendedtoincludeallpubliclyaccessiblegreenspaces.Thesebenefitsareprovidedatlowcost.
• Itonlycosts£1todeliverover£22ofbenefits.Greenspacesprovideover£500ofbenefitperadultresidentperyear.
These figures were provided prior to the COVID-19 pandemic, and it is estimated that they now hold an even greater value.
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6.2StatementsofProgressTheLocalGovernmentAct(NorthernIreland)2014requiresCommunityPlanningPartnershipstoproduceaStatementofProgressonatwo-yearreportingcycle.TheStatementofProgresshastobemeaningfulandunderstandabletolocalpeople,whoaretheintendedaudience.ItshouldreflectwhattheCommunityPlanningPartnershipistryingtoachievefortherecipientsoflocalpublicservicesandbeengagingandinspiringinawaythatgoesbeyondtheusualservicesandcommunications.ThestatementshouldhighlightpracticalachievementswhichareunderstandabletocitizensandprovidealeadintodiscussionsandengagementonthenextstepsfortheCommunityPlan.
Thesecondpeer-to-peerlearningeventprovidedanopportunityforofficersfromacrossthe11councilareastooutlinetheirexperienceofproducingStatementsofProgress.CommunityPlanningPartnershipshavetrialledarangeofdifferenttoolsanddeliverymechanismsincommunicatingtheirStatementsofProgresstocitizensinlinewiththestatutoryrequirement.Arangeofaccessibleoutputs,suchasengagingreports,infographics,andvideoclipswereusedtoreflectonprogressmadeandtoprovideafocusforthefuture.ThemessagesintheStatementsofProgresswerealsotakentotheplacesandspaceswherecitizensspendtime,suchaspublictransport,cinemasorleisurecentres,andsocialmedia.DerryCityandStrabaneCommunityPlanningPartnershipcommittedresourcesfromthisprojecttofurtherdeveloptheircommunicationactivity,includingtheuseofbillboards54.Multiplecommunicationroutescreatedanopportunityfordialogue,incontrasttothetraditionalone-waycommunicationstyleofgovernment,andanopportunitytoredefinetherelationshipbetweengovernmentandcitizens.
54 DCSDC(2019)Statement of Progress.Availableonlineathttps://growderrystrabane.com/wp-content/uploads/2019/11/DCSDC_StatementOfProgress_draft22.pdf
Apaneldiscussionallowedstakeholderstoreflectonthelearnings,noting:
• TheneedforaculturechangeinwaysofworkingaswellashowtheStatementsofProgressdocumentsareproduced.Itwasreflectedthatlocalgovernmentisfurtheraheadonthejourneyonanumberofkeyprocesses,suchascommunityengagementandtheuseofdata,thantheircolleaguesincentralgovernment.
• Theimportanceofgatheringandsharingstoriesofchangeandqualitativeevidenceaswellasdata.
• Theimportanceoflocalauthorityleadership;attendeesshouldbeencouragedtoseekforgivenessratherthanpermission,andtobebold.
• Theimportanceofcollaborationinalloftheexamplescited;onharnessingindividualenergiesforthecollectivegood;culturechange;andmovingoutsideofareasofexpertiseandcomfortzones.
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6.3WorkingwithCommunitiesThefinalpeer-to-peereventwasheldinSeptember2020,duringtheCOVID-19pandemic.Assuchtherewasastrongfocusonwhathadbeenlearntduringtheinitialphaseofthepandemic,includingthefirstlockdown.Inparticular,attendeesreflectedontheirchangingrelationshipwithcommunitiesduringthistime.
Innormalcircumstances,localauthoritiesarecivicleaders,agreeingonanddeliveringlocalpriorities;beingaccountableforpublicmoneyandresources;deliveringservices;andprovidingfacilities,eventsandactivities.Duringthepandemictheserolesstayedmuchthesamebutthecontext,priorities,servicesdeliveredandfinancialconsiderationschangedradically.Councilsandcommunitieshadtobeflexibleandresponsive,anddevelopstrongrelationshipsinarapidlychangingsituation.Withthenewpriorityofkeepingpeoplealive,safeandwellcameradicalchanges.Incomegeneratingservices,suchastheatres,artsvenues,leisurecentresandcommunitycentreswerebroughttoahalt.Facilitieswerere-purposedasfooddistributioncentres,changingfacilitiesforhealthcareworkers,andPPEproductioncentres.Advisoryserviceswereenhancedandextended,andinnovationintheuseoftechnologyandnewwaysofworkinggrew.Howmoneywasbeingspentaltereddramatically,beingredirected,forexample,tosupportcommunityorganisations,communityresilience,andsportshardshipfunds.
Newrolesweredeveloped,suchasdeliveringfood,fuelandcleaningmaterials,collectingprescriptionsandreducinglonelinessandisolation.TheDepartmentforCommunitiesaswellasHealthTrustsandcommunityresponseteamsfromthecommunityandvoluntarysectorweresupportedbycouncilstaff,buildingonexistingcollaborativerelationships.TherobustcommunityplanningstructureshavethereforebeentestedsinceMarch2020,andhaveenabledcoordinationontheground,andencouragedandsupportedvolunteersthroughthedevelopmentofcommunityhubs.Communityhubsprovidedafocusfortheresponsetothecrisis,andawiderpictureofthepandemicforcouncils.
Alternativeservicedeliverymethodswerealsodeveloped.Forexample,insomeareaswastecollectionsbecamemorefrequentwhileHouseholdWasteRecyclingCentreswereclosed.Virtualservices,suchasartsandculture,weredevelopedtosupportwellbeing.Civicleadershipwasalsodeliveredthroughsocialcampaignson,forexample,kindness,respect,andsupportingvictimsofdomesticabuse,therebyreinforcingpublichealthmessages.Electedrepresentativesalsorelayedpublicmessagesofsupport,andprovidedpractical,localassistance.Finally,goodworkinchallengingcircumstanceswasrecognised.
Councilstookaholisticapproachtosupportingwellbeingduringthepandemic.Intermsofsocialwellbeing,localauthoritiescoordinatedandassistedwiththedistributionoffood,prescriptionsandartssupplies;coordinatedvolunteeringefforts;andconductedcampaignsdesignedtopromotementalhealth.Tosupportenvironmentalwellbeing,councilstackledflytipping,promotedbiodiversityandencouragedhomegrowingwherepossible.Volunteerscameoutinsignificantnumberstoassistwiththeseactivities,helpingtofosterasenseofcommunitycohesion.Supportforeconomicwellbeingincludedprovidingbusinessgrants,jobopportunities,adviceandpromotionoflocalbusinesses.Akeyroleofthecivicleadershipofcouncilswasalsotobuildrelationships,torecognisewhenpeoplewentaboveandbeyondthecallofduty,andtoencourageotherstodoso.
Goodcoordinationisvitaltoavoidduplicationandconfusion,andinthisregardthepre-existingcommunityplanningstructureswereimmenselyhelpfulandenabledcouncilstoactquickly.VolunteerNowandtheNorthernIrelandCouncilforVoluntaryAction(NICVA)werecriticallyimportantinhelpingtoaddresstheoverwhelmingvolumeofoffersofhelpfromvolunteers.CouncilsnowappreciatetheneedtoimproveNorthernIreland’sdigitalconnectivity,andhowacrisiscanbeusedbysomeasanopportunity.Thereisalsoaneedtobuildonthegrowthofsocialcapitalthathasemergedduringthecrisis–andinthemoreconnectedcommunities,thenewrelationshipsandbuild-upoftrust.
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Areviewispromisedintothefunctioningofcommunityplanning.Butaftertheexperienceofthepandemicresponse,thefutureofcommunityplanningasamodelisperhapslessindoubtthanitmighthavebeen.Thebenefitsofjointworkingacrosspublicservicesandwithcommunitieshavebeenseeninaction,andwhilethepandemicmayhavebeenabaptismoffire,itprovidedproofofconcept.
OurexperienceofworkingalongsideCommunityPlanningPartnershipsforoverthreeyearshasprovidedCarnegieUKwithauniqueopportunitytoexploreanddeveloprecommendationsonhowcommunityplanningcouldbestrengthenedintheNorthernIrelandcontext.
7.1 CoreFundingTheLocalGovernmentAct(NorthernIreland)2014requireslocalgovernmentanditsstatutorypartnerstopioneerinnovativenewwaysofdeliveringpublicservicesinNorthernIreland.Yetdespitetheneedtoexecutenewpowers,toworkwithinnewpartnershipstructures,andfornew,professionalskillsetstodelivernewservices,communityplanningasapolicyfunctiondoesnotreceivededicatedfundingfromtheNorthernIrelandExecutiveortheotherCommunityPlanningpartners.Theadministrativecostsarebornesolelybylocalcouncils,despitethelanguageofsharedendeavour.
Consequently,smallcommunityplanningteamshavebeendevelopedtosupportNorthernIreland’s11CommunityPlanningPartnershipstoimprovecommunitywellbeingoutcomesasfarintothefutureas2030or2035.Insomecases,alackofdedicatedfundinghasledtocapacityissueswhenoperationalisingcommunityplanningandhaslimitedtheabilitytoinnovateandextendactivitieswhichcouldimprovelocalwellbeingoutcomes.
7.WhatNextforCommunityPlanning in Northern Ireland?
2021isapivotaltimeforcommunityplanninginNorthernIreland.Shortlyafterthisreportispublished,CommunityPlanningPartnershipswillissuetheirsecondStatementsofProgress.
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EmbeddingWellbeinginNorthernIrelandprovidedessentialfundingforactivitiessuchassharedleadershiptrainingandcommunityengagement.Fromourevaluationofthisprogrammewehavenodoubtthatthiswasmoneywellspent.TheseactivitiesarecriticaltothesuccessofCommunityPlanningPartnershipsbutthecostofsuchimportant,multi-agencyprogrammesofactivityshouldnotbebornebyonepartneralone.And,whilewewerehappytostepin,wecannothelpbutnotethatsuchbasicpracticedevelopmentsupportforastatutoryrequirementshouldnothavehadtobeprovidedbyphilanthropy.
Ourprogrammehashighlightedthecapabilitiesoflocalgovernmentasdeliveryagentsofchangewhentheyareadequatelyresourced.WhilethesupporttheExecutivehasprovidedtolocalauthoritiestorespondtoandrecoverfromtheCOVID-19crisisiswelcome–andrecognisesthatcouncilsareinstrumentalinunderstandingandrespondingtotheneedsofcommunities–communityplanning,asalong-termprocessandstatutoryrequirement,needsgreaterstabilityoffinancialsupport.
Recommendation 1All statutory Community Planning Partners(includingagenciesandcentraldepartments)shouldcontributetoafundforthe administration of community planning, to ensurethePartnerships’abilitytodeliveronimproving local wellbeing outcomes over the course of the current Plans.
7.2 LocalGovernmentPowersand Responsibilities
TheLocalGovernmentAct(NorthernIreland)2014wassignificantinreshapingtherelationshipbetweencentralandlocalgovernment.Howeverkeypolicyareasremainatcentrallevel,limitinglocalgovernmentintheirplace-making.
TheLocalGovernment(NorthernIreland)Act2014includedprovisionsforan‘AugmentationReview’followingtheestablishmentofthe11newlocalauthoritiesandtheconsolidationoftheirservices.Nosignificanttransfershavetakenplacesince2015,perhapsduetothewiderpolicyandpoliticalvacuumintheabsenceoftheNorthernIrelandAssemblyandExecutiveandtheCOVID-19pandemic.
Weheardconsistentlythattheomissionofregenerationfromtheportfoliooflocalgovernmentbothrendersthetransferofnecessarypowersincompleteandunderminestheabilityofcommunityplanningtoaddressinequalitiesatthelocallevel.ThisisparticularlyimportanttoremedyinthelightofCOVID-19withcouncilsturningtheirattentiontotheneedtosupportthelocalrecoveryinawaythatmaximisestheimpactonsocial,economicandenvironmentalwellbeing.
Recommendation 2As part of an Augmentation Review, the Northern Ireland Executive should amend theLocalGovernmentAct(NorthernIreland)2014toincluderegenerationamongtheportfolio of powers for local government thereby completing the transfer of the necessary powers required to address inequalities to the local level.
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7.3 BuildingRelationshipsbetween Central and Local Government
Naminglocalauthoritiesastheleadpartnerforcommunityplanninginlegislationhascreatedtheperceptionthatcommunityplanningisownedbythelocalauthority,oronedepartmentwithinit.However,communityplanningisbetterunderstoodasasharedendeavourbetweenequalpartnerstoacttogetheronagreedpriorities.Amoremature,strategicapproachisthereforerequiredtofacilitatethis.
Ourfindingssuggestthatthereissignificantvariationinpartnershipworking,fallingintothreecategories:thosewhoareproactiveandseecommunityplanningascentraltoachievingtheirobjectives;thosewhoviewcommunityplanningashelpingthemtodeliverperipheralaspectsoftheirworkratherthantheircoreactivity;andthosewhoarestilltryingtoseehowcommunityplanningassiststheminthedeliveryoftheircoreworkprogramme.Whileweunderstandthattherewillalwaysbesomestatutorypartnerswhowillbeclosertocommunityplanningthanothers,webelievethatallpartnersshouldexploretheextenttowhichthereisscopeforcloseralignmentbetweentheirorganisation’sobjectivesandtheoutcomesoutlinedintheCommunityPlans.
ThesefindingsechotheearlierGallagherreportandwesharetheirconclusionthatallpublicbodiesneedtobuildcommunityplanningfurtherintotheircoreworkingpractices.Thereweremultiplecasescitedwherethecentraldepartmentsorarms-lengthbodieswerenotbeingrepresentedbydecision-makerswithinthosestructures,limitingtheabilityoftheCommunityPlanningPartnershiptoactcollectivelytowardstheirsharedpriorities.
ThereisasimilareffectatplayintheProgrammeforGovernmentwherealignmentofoutcomesislargelyperceivedasaone-wayprocessoflocalgovernmentaligningwithcentralgovernment,ratherthanseeingtheprocessasasharedactivitytoidentifyoutcomesandtheprioritiesandprogrammesthatflowfromthem.
Recommendation 3
TheFirstMinisterandDeputyFirstMinistershould issue a directive to all departments, statutorybodies,andarms-lengthbodiestoparticipate fully in the community planning process.
Recommendation 4DepartmentalPermanentSecretariesandChiefExecutivesofarms-lengthbodiesshould ensure that those representing their organisations at community planning meetings have sufficient authority to commit resources(humanandfinancial)toactionsdesigned to deliver on agreed CPP outcomes.
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7.4 PooledBudgetsAkeybarrierforachievingCommunityPlanningPartnershipoutcomeswasthecontinueddifficultiesinarrangingpooledbudgetsforagreedprioritiesandactivities.Pooledbudgetsareanarrangementwheretwoormorepartnersmakefinancialcontributionstoasinglefundtoachievespecificoutcomes.Itisasinglebudget,managedbyasinglehostwithaformalpartnershiporjointfundingagreementthatsetsoutaims,accountabilitiesandresponsibilities.
DuringtheemergencyphaseofCOVID-19weobservedexamplesofpartnersbeingmoreflexiblewiththeirapproachtofunding.Thechallengenow,intherecoveryphase,istoensurethatflexibilityisretainedwhereitcanbeseentoimprovewellbeingoutcomesforlocalpopulations.
Pooledbudgets,wheretheydidoccur,wereseenaseffectiveintacklingthetypeofpolicyissuesthathaveadetrimentaleffectonawiderangeofpublicserviceareassuchasmentalhealth,accesstogreenandbluespaceandchildren’sservices.Oftentheactivityrequiredispreventative,withbenefitsaccruingacrossthepublicservicesbutnooneagencyclearlyresponsiblefordelivery.
WenotewithinteresttheguidanceontheChildren’sServicesCo-operationAct(NorthernIreland)2015wherebycouncils,departmentsandagenciesareempoweredtomakecontributionstoapooledfundtoprovideservicesforchildren’swellbeing.Giventhewidedefinitionofchildren’swellbeingusedintheAct,thiswouldapplytomanyoftheactivitiesunderCommunityPlanningPartnershipswherechildrenaredirectandindirectbeneficiaries.Thisapproachshouldbetrialledwithdemonstrationprojects,togainevidenceoftheoutcomesthatcanbeachievedwhenresourcesarepooledandsoughttobescaledup.
Recommendation 5TheDepartmentofFinanceshouldurgentlyissue regulations on pooled budgets under the Children’sServicesCo-operationAct(NorthernIreland)2015andmakeitclearhowthiscanbe applied to a broad range of public service areas.
Recommendation 6TheDepartmentofFinance,workingwith NILGA and the Community Planning OfficersNetworkshouldidentifyanumberofpathwayprojectsonpooledbudgetsresulting in high quality guidance that can be applied across all public services.
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7.5 BuildingRelationshipswith the Community and VoluntarySector
DuringtheCOVID-19pandemic,thecommunityandvoluntarysectordemonstrateditsspeed,flexibility,resilience,andabilitytoreorientanddeliverservicescriticaltocitizens’wellbeing.Thereisanopportunityinapost-COVIDsocietytodevelopanewrelationshipbetweentheNorthernIrelandExecutive,CommunityPlanningPartnershipsandtheCVSwhichutilisespartners’relativestrengthsanddrawontheorganisationsbestplacedtodeliverservicestoimprovecitizens’wellbeing.
AttendeesattheEmbeddingWellbeinginNorthernIrelandCo-productionSymposium55identifiedalegislativeframework,similartotheCommunityEmpowerment(Scotland)Act2015,whichstrengthenedthelegitimacyofco-productionwithpoliticians,civilservantsandcommunities,asapriorityforimprovingtheimplementationofCommunityPlanning.
55 CarnegieUKTrust(2020)Report of Co-Production Symposium. Availableonlineathttps://www.carnegieuktrust.org.uk/publications/embedding-wellbeing-in-northern-ireland-report-of-co-production-symposium/
Recommendation 7Community Planning Partnerships should co-design,co-deliverandco-managepublicserviceswiththeCommunityandVoluntarySector at all levels of service delivery, as part of a new relationship and way of working with the sector.
Recommendation 8Community Planning Partnerships should invest in building the capacity of Community andVoluntarySectorPanels(orotherappropriateengagementmechanisms)toallow their members to share leadership in the delivery of the Community Plan, and to co-produceserviceswithinit.
Recommendation 9Community Planning Partnerships should review the model used to secure community and voluntary sector representation in community planning, to ensure that it supports the flexibility and responsiveness of the sector and capitalises on the energy in local communities realised duringtheCOVID-19pandemic.
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7.6 BuildingRelationshipswith Citizens
TheLocalGovernmentAct(NorthernIreland)2014establishedadutyonCommunityPlanningPartnershipsto“seektheviewsofthecommunity,encouragethemtoexpresstheirviews,andtaketheirviewsintoaccountinthecommunityplanningprocess”.Assuch,localauthoritiesandtheirstatutorypartnersundertooksignificantcitizenengagementinthedevelopmentoftheirCommunityPlans.
TheNewDecade,NewApproachagreementcommittedtomakingpublicconsultationmeaningful,puttingitattheheartofgovernmentpolicy,withaparticularlyimportantcommitmenttoholdingannualCitizen’sAssemblies.Thismeansensuringthatconsultationsarenotsimplypartoftheprocess,butthattheyinformpolicydevelopment,andthatcitizenscanmeaningfullyengageinshapingpoliciesthataffecttheirlives.
TheprojectscarriedoutundertheEmbeddingWellbeingprogrammeincludedtwoParticipatoryBudgetingprojects,bothcarriedoutinthedifficultcircumstancesduringtheCOVID-19pandemic.Thoseinvolvedimproved
theirskillsandconfidenceinusingParticipatoryBudgetingbutthisisfarfromawidespreadapproachintheregion56.
Itisimportanttoensurethatco-designandco-productionisnotseenasan‘addedextra’,butthatitisthefundamentalbasisonwhichpolicyisdevelopedanddelivered.LearningonpreviouscommunityengagementactivitiesbythestatutorypartnersshouldbesharedtoimprovepracticeacrossNorthernIreland.
Recommendation 10Community Planning Partners should co-ordinatetheircitizenengagementstrategies and activities, including Participatory Budgeting, to avoid duplication, ensure coherence, and maximise the impact on collective wellbeing.
56 SeeforexampletheNorthernIrelandAuditOffice(2021)The Northern Ireland budget process. Availableonlineathttps://www.ncchpp.ca/docs/2016_GouvIntGov_PresHiAP_En.pdf
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7.7 ImprovingLeadership in Evidence
Thelong-termnatureofmanycommunityplanningoutcomesrequiresgoodquality,consistentdatatobegatheredoveranumberofyears,enhancedbytherequirementstopublishStatementsofProgress.DataavailabilityandaccesswerekeyissuesfacedbyCommunityPlanningPartnershipsoverthetimeperiodoftheprogramme.
NorthernIrelandisrelativelywellservedbyofficialstatistics,butissuesremainabouttimelyaccesstothisdataparticularlywhenCPPsareproducingStatementsofProgress.CarnegieUKbelievesthattheenhanceduseofNISRAdatacouldhelpCommunityPlanningPartnershipstobetterinformthepublicofprogressandaskrelevantquestionsonhowtoimprovethewellbeingofcitizensacrossthelocalauthorityareas.
Weheardconcernsabouttheslowdevelopmentofadministrativedataforpolicyuse.DuringtheCOVID-19crisis,administrativedatapresentedasanissueintermsofbothhowitcanbeshared,andhowitsinsightscanbeutilised.
Administrativedataoffersrichinformationthatcouldinformpolicyandservicedelivery,particularlywherepre-existinginequalitieshavebeendeepenedbythecrisis.TensionspresentedinthegatheringandsharingofdataduringCOVID-19duetoconcernsaboutsharingacrossagencies.Thesystemsrequiredtosharedatarequiredconsiderableeffortandgoingforwardthereneedstobegreaterclarityabouthow,andforwhatpurpose,datacanbesharedacrosspartnerstoimprovewellbeing.
Recommendation 11NISRA and NILGA should work together to review support to local Community Planning Partnerships on sourcing and analysing data, including consideration of a pool of statisticians that CPPs could access.
Recommendation 12The Northern Ireland Executive should provide guidance on the sharing of administrative data that can support the delivery of Community Planning, to ensure that local partners apply legislation on data protection appropriately and consistently.
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7.8 SpacetoReflect and Learn
ThereisconsiderablevalueininvestinginspacesforCommunityPlanningPartnershipstolearnfromeachother.OurprojectpartnersreportedthevalueoftheCommunityPlanningOfficersNetworkasasourceofsupportastheysoughttodeveloptheirCommunityPlansandundertakenewwaysofworking.
WithintheEmbeddingWellbeingprogramme,theinterestofthoseinvolvedincommunityplanninginlearningfromtheircounterpartsinotherlocalauthorityareasandorganisationshasbeendemonstratedthroughtheextensiveuptakeofparticipationinpeer-to-peerlearningevents,andintheover200-personmembershipofanonlineplatformdesignedtosharelearningonimprovingwellbeingoutcomes.
Atthelocallevel,similarpolicylearningshouldtakeplacebetweenCommunityPlanning
Partnershipsandtheircounterpartstructuresinotherjurisdictions.TheopportunitiestoundertakestudyvisitstoNewYorkandWaleswerewelcomedbytheprojectparticipantsasrareoccasionsonwhichtheycouldlearnfromexpertsoutsideofNorthernIrelandwhoarealsoworkingtoimprovewellbeingoutcomesatasimilarscale.
Recommendation 13ThecurrentCommunityPlanningOfficersNetwork should be supplemented with a larger network to provide a supportive environment in which all members of the Partnerships(includingnon-statutorymembers)candiscusskeyareasofcommunityplanning to improve their practice.
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TheoriginalethosoftheCarnegieUKworkinNorthernIrelandwastoexplorewhetherwellbeingprovidedastrongenoughnarrativetoprovideaspaceforpolicydevelopmentthatwasabovetheday-to-dayrealityofamandatorycoalition.Whileclearlythishasnotemergedintheperiodofinstabilityfrom2016to2021,webelieveitstillremainstherightpathforNorthernIreland.
OurexperienceofworkingwithCommunityPlanningPartnershipshasreinforcedthis.Workingwithinthesamecontext,theyhavefoundacommonlanguagethroughwellbeingoutcomestodevelopsharedsolutions.Theyhavedonesowithamyriadofpractical,fundingandorganisationalobstacles.Theyhavealsochallengedthemselvestolookbeyondelectoralcyclesbysettingoutplansforthelong-term.TherearelessonsherefortheNorthernIrelandExecutive.
ThroughoutthisprojectwehavesoughtnotonlytoprovideinformationinrealtimetoCommunityPlanningPartnershipstosupporttheirwork,butalsotothewiderpolicycommunity.WehavetestedandreflectedwithothersonwhatthebestnextstepsareforwellbeinginNorthernIreland.Innoneoftheseconversationsdidanyone,atanypoint,advocateabandoningthewellbeingapproach.Instead,themessagewasofajobleftincompletein2017thatneededtobepickedupasamatterofurgency.
8.WhatNextforWellbeinginNorthernIreland?
NorthernIrelandhasonceagainbeenthroughaperiodofsignificantanddeepdisruption.WhenthenextNorthernIrelandAssemblyiselectedandtakesitsseats,therewillbetheopportunitytofullyreviewtheProgrammeforGovernment.Atthatpoint,therewillbeachoice–tocontinuetoseekadifferentwayofworkingthroughthewellbeingapproach,ortofallbacktotheoldsystemofsilosanddepartmentalpriorities.
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8.1 Re-committotheWellbeing Approach
Politicalsupportiskeytoensuringthelong-termchangewhichcommunityplanningseekstoachieveoverthecourseofageneration.Thisrequirescommitment,maturityandunderstandingfrompoliticiansinlocalandcentralgovernmenttoensurethosechargedwithdeliveringcommunityplanninghavethesupportandresourcestodoso.
ThedevelopmentofanewProgrammeforGovernment,post-election,isanopportunitytoarticulatethegoldenthreadbetweentheNewDecade,NewApproachAgreement,theProgrammeforGovernmentandCommunityPlans,andwiderglobalcommitments,suchastheUNSustainableDevelopmentGoals,todeliverwellbeingoutcomes.
Collectiveleadershipiscriticalforthedeliveryofawellbeingframeworkandanoutcomes-basedapproach;bydefinitionitrequiresnew
approachestoadministrativeleadershipandpractice.ThroughoutourworkinNorthernIreland,theneedforstrongercollectiveleadership‘atthetop’hasbeenhighlightedasaseriousandsignificantissue.Thisleadershipisrequiredtostrengthenjoinedupworkinghorizontallybetweendepartments,andverticallywithothertiersofgovernmentandpublicservices.CommunityPlanningPartnerships,requiredtoworkacrossprofessionalanddepartmentalboundariestoachievetheiroutcomes,themselveshaveexperiencedconfusionaboutthelackofjoinedupthinkingatabroader,regionallevel.
Recommendation 14
All Northern Ireland Executive Ministers should demonstrate collective leadership in ensuring the delivery of the wellbeing approach.
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8.2HoldaCitizens’Assemblyon Collective Wellbeing in aPost-COVID-19Society
UndertakinggoodqualitycitizenengagementprovidestheExecutivewiththeopportunitytoimprovecitizenunderstandingofandsupportforitsworkandtoimprovetrustandrelationshipsbetweencommunitiesandcentralgovernment.Thebenefitsofextensivecitizenengagementanddeliberativemethodsarewellknown.However,theywillonlybeachievediftheExecutiveisclearinitscommunicationastothepurposeofitsengagement;howfeedbackfromcitizenswillbeused;andhowtheExecutivewillcontinuetocommunicatewiththosewhotookpartintheprocess.
InimplementingtheProgrammeforGovernment,theExecutiveshouldbuildoninternationalbestpracticeoncitizenengagement–suchastheInternationalAssociationforPublicParticipation’sSpectrumofPublicParticipation–toinformitsengagementstrategy.Armagh,BanbridgeandCraigavonCommunityPlanningPartnershipandDerryandStrabaneCommunityPlanningPartnershiphavecommittedtoembeddingtheSpectrumandtheScottishNationalStandardsforCommunityEngagementinengagingtheircommunitiesatthelocallevel.
Totransformdecisionmakingandaddressinequality,itisimportantthattheengagementstrategyenablesallcitizensofNorthernIrelandtofeeltheirvoicesandopinionsarerecognised,heardandvalued.Forthistobeachieved,thepublicneedstoseethesereflectedintheProgrammeforGovernment.WerecommendthattheExecutivehostsafullpublicconversationonsocietalwellbeinginapost-COVID-19society,asaninitialstep.ThiscouldincludeaCitizensAssemblyontheindicatorsandoutcomesintheframework.Anyinitialengagementshouldbefollowedupwithalonger-termstrategyforon-goingengagementaboutcollectivewellbeing.
Recommendation 15The Northern Ireland Executive should hold aCitizens’Assemblyoncollectivewellbeinginapost-COVID-19societyandbuildastrategy for ongoing public engagement in the framework and recovery.
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8.3LegislatetoProtecttheWellbeing of Current and Future Generations
TheoutcomesapproachcurrentlysitsintheProgrammeforGovernmentpolicyprocess.Fromourinternationalexperience,weknowthattheNorthernIrelandExecutiveisuniqueinlocatingitswellbeingframeworksolelyinthisplanningdocument,creatingconfusionaboutitsstatus.Duringthethree-yearsuspensionoftheAssemblyandExecutive,therewasnoagreedframework.Thiscreateddifficultiesastheextenttowhichregionalorlocalgovernmentwereexpectedtoembraceadifferentwayofworkingwasnotclear.
AstatutorybasiswouldelevatetheoutcomesapproachfrombeingoneofmanyinitiativestobecomingaframeworkforallaspectsofgovernanceinNorthernIreland.Publicorganisationsshouldhaveadutytoconsiderandmakeprogresstowardstheoutcomes,andtheoutcomesthemselvesshouldbesubjecttohigh-qualityengagementanddialoguewithcitizenseveryfouryears(inlinewiththeassemblysession).
WeareawaretherearemultiplecallsforawellbeinglawinNorthernIreland–variouslyreferredtoastheWellbeingofFutureGenerations,ClimateChangeoraSustainableDevelopmentlaw.Thereisalsoanoverlapwithotherlegislativecallsonpublicsectorreform.ForCarnegieUK,thetitleoftheBillmatterslessthantheurgentneedtosolidifytheapproachthroughstatutorymechanisms.
Enshrininganapproachwhichimproveswellbeinginlawwouldsafeguarditagainstfurtherinterruptionsingovernanceandelectoralcycles.ThishasbeenachievedinScotlandthroughtheCommunityEmpowerment(Scotland)Act2015andinWalesthroughtheWellbeingofFutureGenerations(Wales)Act2015.Inaddition,webelieveitwouldaddlegitimacytotheactionsofcivilservantsandimprovecollectiveaccountability.
Recommendation 16The Northern Ireland Executive should legislate, as a matter of urgency, to protect the wellbeing of future and current generations by placing the wellbeing outcomes and indicators on a statutory footing.
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8.4LegislateforaDutytoCo-operate
TheTrust’sprojectworkhashighlightedthattherearevaryinglevelsofcommitmenttocommunityplanningasapolicyvehiclebystatutorypartnersandgovernmentdepartments,whichraiseswiderconcernsaboutcollaboratingforoutcomesintheProgrammeforGovernment.
AttendeesattheEmbeddingWellbeinginNorthernIrelandCo-productionSymposiumidentifiedalegislativeframework,similartotheCommunityEmpowerment(Scotland)Act2015,whichstrengthenedthelegitimacyofpartnershipworkingwithpoliticians,civilservantsandcommunities,asapriorityforimprovingtheimplementationofcommunityplanningandtheoutcomes-basedapproach.Thisexistsforchildren’sauthoritiesundertheChildren’sServicesCo-operationAct(NorthernIreland)2015whichrequires:
“Every children’s authority must, so far as consistent with the proper exercise of its children functions (functions which may contribute to the well-being of children and young persons), co-operate with other children’s authorities and with other children’s service providers in the exercise of those functions” AND “The Executive must make arrangements to promote co-operation”
Asnon-statutorybodies,thecommunityandvoluntarysectorwouldnotbeincludedinthedutytocollaborate,exceptwheretheyareprovidingpublicservicesundercontracttoapublicbody.Ourexperienceisthatthecommunityandvoluntarysectoriscommittedtoinvolvementindesign,aswellasdelivery,ofpublicservices,asdemonstratedintheirresponsetotheCOVID-19pandemic.PartnershipbetweentheDepartmentforCommunitiesandcouncils,andamongcouncilsandcommunitygroups,wasseeninactionduringtheinitialphaseofthepandemicandhasalsobeenrecognisedduringwideremergencysituations,demonstratingtheirimportantrole57.
Recommendation 17The Northern Ireland Executive should introduceaDutytoCo-operateforservicesfor the whole population, requiring departments, agencies and councils to work together to improve social, economic, environmental and democratic wellbeing outcomes.
57 DepartmentforInfrastructure(2020)Mallon praises community partnership in face of Storm Francis and urges caution as warnings remain in place.Availableonlineathttps://www.infrastructure-ni.gov.uk/news/mallon-praises-community-partnership-face-storm-francis-and-urges-caution-warnings-remain-place
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8.5BuildaMulti-sectoralLeadership Community toDeepenWellbeingPractice
Thelackofcross-sectoralknowledgeexchangethatweidentifiedatlocallevelisreplicatedforNorthernIrelandasawhole.Ourconversationsconfirmedthatthereisnoclearspaceforleaders(broadlydefined)tocometogetherandtalkaboutsocialprogressandthebarrierstoimprovement.
Ourworkwithpartnersidentifiedanumberof‘faultlines’:
• Centraldepartmentsversusarms-lengthbodiesversuslocalgovernment
• Publicversusprivateversusvoluntarysector• Professionalinterestsversuscitizenand
communityinterests
Wecallthesefaultlinesbecauseweobservednumerousoccasionswherethepartnernotintheroomwas‘atfault’.Whileundoubtedlythere
areoccasionswhereasectororgrouphasnotoperatedeffectively,thecultureoffindingfaultandattributingblamereducestheopportunitytounderstandandexploretogetherwhatmightbehappeningtocreatethebarriertochangeandhowtheymightbeeffectivelyovercome.
ThereweredifferentviewsonwhetherthisshouldbeestablishedbytheNorthernIrelandExecutive,butwhilethereweresomereservationsaboutthelevelofcontrolthismightexert,thereremainedasensethattheNorthernIrelandExecutiveistheonlybodythatcangivepermissionforsuchaforumtobeconvened.
Recommendation 18TheFirstMinisterandDeputyFirstMinistershouldlaunchandfundamulti-sectoralleadership forum that brings people together across sectoral groupings and professional boundaries to explore how partners work collaboratively to improve wellbeing.
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Eachofthesethreeupheavalshitlocalgovernment,andcommunityplanning,hard.Eachofthemrequirednewknowledgetobegenerated,stretchedalreadystrainedresourcesandtookapersonaltollonthoseworkingtoimprovelivesintheircommunities.
Andsoourfinalreflectionsarenotonthestructuresandprocessesofpolicymaking.Wehavesaidenoughaboutthose.Ourendnotesareaboutrelationships.Therelationshipsbetweenthecommunityplanningofficersattheheartofthisprojectdeepenedastherequirementsofthejobchangedaroundthem.Therelationshipsbetweenlocalgovernmentofficersandcommunitygroupsandcitizensshiftedastheyallcametogethertodowhattheycouldinthefaceofunprecedentedneed.
Aseachoftheserelationshipswastested,itwasstrengthened,andhelpedtobuildwhatsomepeoplecallresilience.Thateachofourprojectpartnerswasabletorisetothechallengesofsharedleadershipandco-productionwithinsuchadifficulteraistestamenttotheircommitmentandskillaspublicservants.
Otherrelationshipsdidnotcometogether.TherearefundamentalpowerdifferentialsbetweenthecentreandthelocalinNorthernIreland.Ourviewisthatthedaysofcommandandcontrolareover.ThecurrentandnextleadershipinNorthernIrelandshouldlooktolocalCommunityPlanningPartnershipsforguidanceonhowtoworktogether,forthecollectivewellbeingofalltheirpeople.
9.Endnotes–ReflectionsfromtheCarnegieUKTeam
TheEmbeddingWellbeinginNorthernIrelandprogrammewasconceivedinthemidstoftwoconnectedcrises–theBrexitvotein2016andthecollapseoftheAssemblyin2017.Itcontinuedinthefaceofathirdunprecedentedcrisis,theglobalCOVID-19pandemic.
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10.1TheOutcomeMapWorkingwithMatterofFocus,theteamproducedanoutcomemaplinkingtheactivityintheprojecttotheoutcomesweseek.FigureA.1illustratestheoutcomesthattheprojectsoughttoachieve.
Qualitativeevidencewassoughttoshowtheextenttowhichtheoutcomeswerebeingrealisedthroughtheproject.Thefinalcolumnofthedifferencethattheprogrammehasmadeisthehardesttoevidence.ThereisevidenceofprogresstowardsembeddingwellbeingineachofthethreepartnershipareasandinthewiderstakeholdersengagedinpublicservicedeliveryinNorthernIreland.Forprojectparticipants,includingthoseengagedinParticipatoryBudgetingandcommunityengagementactivities,therearereportsthatsuggestimprovedwellbeing.However,giventheeffectsofCOVID-19onthewellbeingofthepopulationwithinthethreeareasitisnotpossibletoascertainanydirectbenefitoncitizensatthistime.
CarnegieUKacknowledgesthatthereremainsworktodoacrossalloftheoutcomeareas,andtheexamplesillustratedherearenotanexhaustivelist.However,theydemonstrateboththeprogressthathasbeenmadeduringashorttimeperiod,andthefurtherprogressthatcouldbemadeacrosstheprojectoutcomes,ifthewellbeingapproach–anditsprinciplesofsharedleadershipandcoproduction–arefurtherprogressed.
10.2EvaluationSurveyby CES on Shared Leadership Programme
AtthecloseoftheSharedLeadershipProgramme,CESadministeredanonlinequalitativeandquantitativesurveytoassessparticipantviewsoftheprogrammeandanydifferencethismadetotheirexperienceofcommunityplanning.WeaskedparticipantstoscoretheirperceptionsoftheextenttowhichaspectsoftheirCPPexperiencehadchangedasaresultoftheprogramme,aswellastheirviewsoffuturedevelopmentneeds.Atotalof13responseswerereceived.Inreportedresultsbelow,CEShasnotedresultsforthosewhoscored4or5(tosomeortoagreatextent)intheirresponses.
ThesurveyresultsindicatedthatrespondentsdidfeelthattherehadbeensomechangestotheirexperienceoftheCPPasaresultoftheprogramme.Notably,75%ofrespondentsfeltthat(tosomeoragreatextent)theprogrammehadprovidedaspaceforstrategicthinking,whereas76%indicatedtheprogrammehadincreaseddialogueandcreativethinkingandnumber(76%)indicatedtherewereincreasedopportunitiestolearnfromoneanotherandtheyfeltempoweredtoparticipate.Similarly,77%indicatedtheprogrammehadbuiltrelationshipsintheCPPtosomeextent.Over60%indicatedthattheprogrammehad,tosomeoragreatextent,equalisedpowerbetweenmembersofCPPs.
Almost60%hadindicatedtheirknowledgeofinequalityhadincreased,whereasover60%hadincreasedtheirunderstandingofcommunitywellbeingand53%indicatedthattheirknowledgeofpartneringwithgovernmenthadincreased.Sixtyeightpercenthadincreased
10. Appendix–evaluation
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FigureA.1EmbeddingWellbeinginNorthernIrelandOutcomeMap,createdusingOUTNAVsoftware
What we do
ProvidecollectiveandindividualsupporttotheCPPstoworktogetherbettertodelivera
wellbeing-focusedcommunityplan
FacilitateCPPnetworktoshare
learning
Convenecross-system
conversationstoraiseawarenessandmakethecaseforawellbeingapproach
Provideindependent
expertsupporttoimplementationofwellbeingapproaches
Captureandsharelearningfromthe
programme
Who with
ThreeCPPsparticipatingintheEnablingWellbeingprogramme
ThreeCPPsandwiderCPPnetwork
Seniorleaders
Regionalstakeholders
MLAs
Howtheyfeel
Carnegieisrespected
asaconvenerandexpert
Listentoandvalued
Thisisrelevant,timelyandhelpful
Safe,supported
andcommittedtomakechange
Weareinspiredandengagedtochange
What they learn and gain
Knowledge,skillsandconfidence
toembedwellbeing-focused
communityplanning
Understandthevalueofevidenceforcommunity
planning
Changedmindsettoenablemoretransparentworking
Improvedunderstandingoftheimportanceoffocusingonwellbeingandhowithasbeensuccessfullyappliedaroundtheworld
Evidence,toolsandresourcesthatenableputtingawellbeingapproachintopractice
Confidenceinusingevidenceforcommunity
planning
What they do
differently
Keepwellbeingatthecentreofdecisionmakingforlocalcitizens
WorktogetherbetterwithintheCPP
Sharelearningandprogresshonestly
Promote,championandcreate
theconditionsforwellbeingapproaches
Makebetteruseofexistingnetworks
andimprovepartnershipworking
What difference does this make?
PeopleinthethreeCPPs
haveimprovedwellbeing
Wellbeingisembeddedinbothpolicyandpractice
PeopleinNorthern
Irelandhaveimprovedwellbeing
Extrapolatefrom
experienceandevidencetoscale-outwellbeingapproaches
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theirunderstandingofcommunitypartners.However,alowernumber(46%)reportedthattheprogrammehadincreasedtheirunderstandingofthestrategicpolicycontext.
Weaskedparticipantstodescribewaysinwhichtheyhaveputprogrammelearningintoeffect.Responsesincludedspecificimpact,forexample,onlocalityplans“FeedbackfromworkinggroupintoSCPPmeetingwithimpactonourlocalityplans”tofeedbackontheoverallcollectiveapproach,forexample“Proposalstoreducejargon,engageyoungpeople,sharetheleadershipwithintheCPP”and“Byhighlightingtheimportanceofsolvingproblemscollectivelyintheinterestofcommunitywellbeing”.
10.2.1 Assessing the Online Learning Platform
Asoneofthefirstonlineleadershipprogrammesundertakenforthoseinvolvedincommunityplanning,CESwasinterestedinassessingtheimpactofonlinedelivery.Participantsdidvaluetheconvenience,suchastraveltimesavedandeaseofaccessoftheprogramme,aswellasfacilitationoftheprogramme.Theonlineplatformofferedparticipantsa‘chat’and‘reaction’functionaswellasspeakingopportunitieswhichincreasedparticipationforeveryone,andreducedthedominanceofextrovertparticipantsthatcanoccasionallyimbalanceengagementwithin-persondelivery.
However,participantsexpressedthevalueofin-persondelivery:“thereisnoreplacementforactuallybeingwitheachother(inthephysical)andbuildingrelationships,sharingmorestoriesofnewpartneringwork”,andtheimpactoflosinginformaldiscussionandnetworkinge.g.“Onlylesspersonalinthatdidn’tmakesamerelationshipswithpeople”.Ablendeddeliverymayworkinfuture,whichwouldbalanceconvenienceandrelationshipbuilding.
CESalsoaskedparticipantsaboutfuturedevelopmentneeds.Therewereanumberofsuggestionsforfurtherengagementandlearning,includingbuildingrelationshipsinandbetweenCPPse.g.“Continuetobuildrelationshipsbetweenpartners”;“Learningfromtheother10partnerships”;“CVSengagementandcollaborationofpartners”;buildingtechnicalknowledgee.g.“understandingforallpartnersofthelegislativerequirementsonstatutorypartners”,“procurement”and“evidence”;andspendingtimedeepeningplanninginCPPse.g.“breakoutsessionstoconsiderthekeyprioritiesforourpartnership”.
Theonlinesurveyresultsareanencouragingreflectionofthedifferencetheprogrammehasmade,particularlyinareaswherechangewasrequired,suchasinsharingleadershipandrebalancingpower.Thesethemeswerefurtherexploredininterviewsandfocusgroups.
10.2.3 Interviews and Focus Groups
CESheldanumberofinterviewsandfocusgroupswithprogrammeparticipantsandstrategicleadersinthe3CPPs.Inadditiontoassessingviewsofthedifferencetheprogrammehasmade,theinterviewsconsideredtheongoingchallengesfacedinimplementingcommunityplanninginNorthernIreland.
OnethemeexploredintheinterviewsandfocusgroupswasthedifferencetheprogrammemadetoindividualparticipantsandtheirrolewithintheCPP.Forsomewhohavebeenengagedintheresponsetothepandemic,ithasbeendifficulttodigestthelearning:“Difficultfor[Statutorypartner]totakelearningandleadershipfurtherduetostressofCOVID-19e.g.processingcrisispaymentsisapriority”.Forothers,theprogrammeprovidedavaluablethinkingandlearningspaceonthemesgeneratedintheMay2020workshop,e.g.“Enjoyedthecontentofprogramforexampleonhealthinequalities”and“theprogrammehasmadeadifferenceintermsofknowledgeandgiving[a]framework
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foranewwayofthinking,showinghowsharedleadershipwillwork”.Theleadershipcontentwasalsovalued:“Putthefocusonthinkingaboutleadership;formatgood–wellstructured,reasonablyinformalformat,goodquestions,gooddiversityofparticipants”.
Participantsalsoreportedasenseofbeingrecommittedandthoughtfulabouttheirpartnership,feelingmore“energised,enthusiasticandreengaged”withtheirCPPduetotheprogramme,and“personallyithasenabledmetodistilmythinkingonthisissueandtousethisthinkingandlearningintomywork–inparticularintothedevelopmentofthefutureplanningmodelfor[localarea]”.
Forsome,itwasregardedasaninitialsteptowardschange,the“startofajourneyratherthananend”,withthepotentialtoreachthosewhodidnotparticipateintheprogrammeandwerenotinclinedtobeactivepartners:“Wouldhavelikedtoengagewithawiderreachofpartnership…tendtobethesamepeoplebeingcommittedincommunityplanning”.
Participantsalsosaidtherewasaneedforfurtherprogressonsharedleadership:“Haven’tfullyachievedsharedleadership”,particularlyduetothe“needtobuildfurtherclarityaboutpartnerrolesandcontributions”.
Someparticipantswantedmoretimetoobservechangesfromtheprogrammeandhadsuggestedaforumforfurtherconnection,whileothersstatedtheywanted“moretimetoapplyknowledgeandlearning”.ItwasalsosuggestedthatcommunicationstrategiesweredevelopedforeachCPPtocontinuesharingworkemergingfromtheprogramme.
Weexploredthetransitiontoanonlineprogrammewithparticipants.Therewerebothbenefitsandchallengesofusingthismethodreflectedininterviewsandfocusgroups–“theonlinecommunicationincreasesattendance,reducestravelissues,morepractical”–whereasothersreflectedthefatigueoftenexperienced
byonlinecalls:“onlinecommunicationcanleadtozoomfatigue”,andthechallengeoffullyengaging:“difficulttoreadbehavioursandnonverbalcuesinonlinemeetings”.Theconsensusfavouredablendedapproachofon-lineandin-personmethodsforfutureprogrammes.
10.3EvaluationofWiderActivity by Stratagem
QuarterlyevaluationcallsundertakenbyStratagem,alongsidestakeholderfeedbackprovideddirectlytotheTrustandindependentanecdotalevidenceformedthebasisoftheprojectevaluation.
Thevariousroundsofstakeholderevaluationhaveillustratedshiftsinthelevelofpartnershipworking,yetelementsoftheoldculturestillremain.ThisisparticularlyclearamongregionalCPPpartnerswhofinditdifficulttoworkonalocalscaleorstruggletoparticipateunlesstheyareabletoprovehowsomethingtheyhavedonespeciallyhasledtoserviceimprovements.Thefollowingofferafewexamplesoffeedback:
Additional support would look something like Carnegie UK bringing more global experience to NI. Leveraging their name and reputation to bring speakers and expertise to NI that is not currently here.” (Sept 2019).
“What would be useful for Carnegie UK is to, again, apply their knowledge of effective intentions elsewhere, both in GB and internationally, so we can see what works and doesn’t work.” (Sept 2019)
“The direct bespoke support has been fantastic and we are very happy with the support we are receiving. Having Carnegie UK attached to our work holds a lot of weight.” (Jan 2020).
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Influencing Decision Makers
Overthecourseoftheproject,CarnegieUKhasconvenedseveralcross-systemandpartyconversationstoraiseawarenessoftheprojectandmakethecaseforawellbeingapproach.CarnegieUKhasformallyprovidedevidencetotheCommitteeforCommunities,CommitteefortheExecutiveOfficeandCommitteeforFinance,alongside1-to-1meetingswithmembersoftheExecutiveOffice,MembersoftheLegislativeAssemblyandtheCommunitiesandJuniorMinisters.WiththeAssemblynotmeetingbetweenJanuary2017andJanuary2020–andnoMinistersinpost-engagementhastakenplacemoreinthesecondhalfoftheprojectperiod.
TheimpactofCarnegieUK’sinfluenceonprogressalongthispathwayislessclearduetothelevelofdecision-makers,particularlyamongpoliticiansandMinisters.Wecan’tforexample,askdecision-makersdirectlyhowtheyperceiveorviewCarnegieUKintermsofbeingtrustedexpertsandconveners.However,wecantakeahighdegreeofconfidencefromthesuccessoftheTrust’sinfluencingaroundwellbeing,anditsplaceattheheartoftwosuccessiveProgrammesforGovernment.WecanalsotakeconfidencefromthefactthatMinisters,individualMLAs,PermanentSecretariesandseniorcivilservantsandCommitteeshaveallmetandreceivedbriefingsfromCarnegieUKonnumerousoccasionsoverthepastnumberofyears.
Thefollowingofferafewspecificexamplesofevidencetosuggestanincreaseinthesupportforawellbeingapproach:
• CollectivewellbeingwasplacedattheheartofdraftProgrammeforGovernment,2016-21,followingthe2015RoundtableconvenedbyCarnegieUK.TherewasafurthercommitmenttowellbeingintheNewDecade,NewApproachAgreementandtoplaceitagainattheheartofthenewProgrammeforGovernment,2021-26.
• Anincreaseintheuseoflanguagearoundsocietalwellbeing,forexamplewhenFirstMinisterMichelleO’NeillMLArespondedtoaquestionintheAssemblyoneconomicrecovery,notingacommitmenttoan“inclusive,joinedupandcollaborativeProgrammeforGovernmenttodelivergoodoutcomes”,addingthat“dialoguewithstakeholdersiscriticalforstrengtheningandenhancingsocietalwellbeing.”
• FollowingbriefingsbyCarnegieUKtothemainpoliticalpartiesintheStormontExecutiveinFebruary2020,theTrustwasmentionedduringameetingoftheEconomyCommitteeinrelationtofoodpovertyandwellbeingbySinnFéinchiefwhipJohnO’DowdMLA.
• FermanaghandOmaghDistrictCouncilreceivedaletterfromtheFirstMinisterandDeputyFirstMinisteracknowledgingtheCouncil’ssupportforCarnegieUK’srecommendations.Init,bothMinisterssaidtheywere“encouragedbytheCouncil’sendorsementofanOutcomes-basedapproach”andthatthey“welcometheCarnegiereportasausefuladditioninoureffortstodeliveronanagendawhichbringssocietalwellbeingtothefore.”
AsoutlinedinCarnegieUK’sresponsetotheProgrammeforGovernmentOutcomesDeliveryFramework,NorthernIreland’sjourneytowardsawellbeingoutcomesapproachhasbeenanintermittentone.Atthispointintime,andaswemoveforwardtorecoverfromthepandemic,astrongindicationofcommitmenttosocietalwellbeingasawholeofgovernmentapproachisstillrequired.ThedraftProgrammeforGovernmentwasahelpfulstartingpoint,butwebelievethattheNorthernIrelandExecutivehasthepotentialtogofurtherinimplementingitswellbeingapproach.
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Peer-to-peer Learning
CarnegieUKhasconvenedanumberofpeer-to-peereventsthroughoutthedurationoftheEmbeddingWellbeingProject,toencouragemorecollaborative,partnershipworking,promotethevalueofevidenceforcommunityplanning,andchangemindsetstoenablemoretransparentworking.
Thepeer-to-peerlearningeventswereeachwellattendedbyrepresentativesfromacrossthe11CommunityPlanningPartnerships,withencouragingengagementduringtheeventsthemselves.Activitieshaveincludedahackathon,internationalstudyvisitstoNewYorkandWales,andanonlineSlackchannelforsharinglearning.
ThestudyvisittoWaleshasfrequentlybeenhighlightedbyprojectparticipantsasprovidingthemwithknowledgeabouthowawellbeingapproachcouldbetakenforwardandimplementedatcommunityplanninglevel.
Thesuccessofthepeer-learningapproachisdemonstratedbythefollowingexamples:
• DerryandStrabaneDistrictCounciladoptedtheCommunityEngagementPlanthathadbeencreatedbyArmaghCity,BanbridgeandCraigavonBoroughCouncilasaresultofthesharedlearningattheDecember2019peer-to-peerevent.
• TheEmbeddingWellbeingProjectisastandingagendaitemintheCommunityPlanningOfficersNetworkmonthlymeeting.
• IncreasedcommunicationwithintheCommunityPlanningPartnershipsparticipantsreportthattheynowfeelabletoseeksupportandguidancefrompeersoutsidetheirownpartnership.