ITEM 15 Category One Responder Update
North Lanarkshire Council · 22 May 2024
Back to IJB Performance, Finance and Audit Committee — 22 May 2024 and its agenda
Text extracted from the council's PDF. Layout and reading order may differ from the original.
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1 REPORT Item No: 15 SUBJECT: IJB Category 1 Responders in Civil Contingencies Act 2004 TO: IJB Performance Finance & Audit Committee Lead Officer for Report: Ross McGuffie, Chief Officer NL HSCP Author(s) of Report Stacey Anderson, Services Support Project Manager DATE: 22 May 2024 1. PURPOSE OF REPORT This paper is coming to the IJB PFA for: For approval ☐ For endorsement ☐ To note ☒ 2. ROUTE TO THE BOARD This paper has been: Prepared By: ☐ Reviewed By: ☒ Endorsed By: ☐ By the Senior Leadership Team. 3. RECOMMENDATIONS 3.1 The IJB PFA is asked to note the progress made in confirming identified resilience leads and note that local resilience plans are continually under review.
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2 4. VARIATIONS TO DIRECTIONS? 5. BACKGROUND/SUMMARY OF KEY ISSUES 5.1 Background 5.1.1 The Civil Contingencies Act 2004 was established with the aim of minimising disruption in the event of an emergency and to ensure that UK as a whole is better prepared to deal with a range of emergency situations. 5.1.2 Part 1 of the Act provides a focus on local arrangements for civil protection, establishing the statutory framework of roles and responsibilities for local responders. 5.1.3 Part 2 of the Act focuses on emergency powers and establishes a framework for the use of special legislative measures that may be required to deal with exceptionally serious emergencies. 5.1.4 On 24th September 2020, the Cabinet Secretary for Health and Sport wrote to confirm the intention of the Scottish Government to pass legislation that will include Integration Joint Boards as Category 1 Responders under Schedule 2 of the Civil Contingencies Act, 2004. 5.1.5 The North Lanarkshire IJB responded to the consultation, noting the positive local relationships and the importance of IJBs and HSCPs being central to the resilience response in local partnerships. 5.1.6 On 15th January 2021, the Cabinet Secretary for Health and Sport wrote to confirm the intention to include IJBs as Category 1 Responders on conclusion of the consultation. 5.1.7 The Chief Officer of the IJB has been a long-standing member of the Local Resilience Partnership (LRP) and this has continued since the changes to the Act were confirmed. In addition, the Chief Officer now attends the West of Scotland Regional Resilience Partnership (WosRRP). 5.1.8 Through the WoSRRP, a short-term working group was convened with IJB Chief Officers and West of Scotland leads to gain assurance around the IJBs’ preparedness and integration into the wider resilience community following their categorisation as Category One organisations in 2021. 5.1.9 In March 2023, a report was presented to the IJB, detailing an overview of a survey that was conducted with all West of Scotland IJB’s and Local Resilience Partnerships to gain assurance that the IJBs were now fully embedded within the local resilience structures, in line with the expectations set out in the Act. The results of the survey demonstrated that the North Yes ☐ No ☒ N/A ☐
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3 Lanarkshire IJB/HSCP was well embedded in the Local Resilience Partnership structures. 5.2 Progress Update 5.2.1 A follow up survey was issued by WoSRRP in October 2023 to help track progress and ensure that IJBs continued to embed with local resilience structures. 5.2.2 Within the Lanarkshire Resilience Partnership, a collaborative process was undertaken to complete the survey in conjunction with the two councils, NHS Lanarkshire and the two IJBS. 5.2.3 As set out in Appendix 1, the North Lanarkshire IJB / HSCP continues to embed in the Local Resilience Partnership Structures at both strategic and operational levels. The North Lanarkshire IJB / HSCP continues to review continuity plans, has worked in partnership to implement new resilience processes and systems and has played an active role in a number of planning exercises and encouraging H&SCP staff to attend resilience related training (Loggist training, Crisis Management and Continuity Planning). 5.2.4 The aim for North Lanarkshire Health and Social Care Partnership in 2024 is to develop a partnership resilience guidance document that can be used by both Health and Social work staff, with the objective of understanding levels of responsibility across the partnership and providing clear direction and guidance on implementing resilience plans. 5.2.5 Appendix two outlines the WoSRRP analysis of the returns, which is very positive. While some concerns were identified in the original survey in 2022, the most recent survey has demonstrated significant progress around the areas of gaps. 5.2.6 Most importantly, it was recognised that IJBs are now represented at all three levels of command – operational, tactical and strategic – and based on this progress, it was agreed at the April meeting of WoSRRP that there is no further requirement to repeat this exercise. 6. CONCLUSIONS 6.1 The North Lanarkshire IJB and HSCP have positive local arrangements in place that have seen the IJB fully embedded into the local resilience partnership process. 6.2 The attached survey responses provided further assurance that the IJB/ HSCP is meeting the requirements set out in the Civil Contingencies Act 2004.
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4 7. IMPLICATIONS 7.1 NATIONAL OUTCOMES Link(s) to National Health and Wellbeing Outcomes People are able to look after and improve their own health and wellbeing and live in good health for longer ☐ People, including those with disabilities or long-term conditions, or who are frail, are able to live, as far as reasonable practicable, independently and at home or in a homely setting in their community ☐ People who use Health and Social Care Services have positive experiences of those services, and have dignity respected ☐ Health and Social Care Services are centred on helping to maintain or improve the quality of life of people who use those services ☒ Health and Social Care Services contribute to reducing health inequalities ☐ People who use Health and Social Care Services are safe from harm ☒ People who work in Health and Social Care Services feel engaged with the work they do and are supported to continuously improve the information, support, care and treatment they provide ☐ Resources are used effectively and efficiently in the provision of Health and Social Care Services ☐ 7.2 ASSOCIATED MEASURE(S) 7.3 FINANCIAL This paper has been reviewed by Finance: 7.4 RISK ASSESSMENT/RISK MANAGEMENT Relevant Risk Register Details Current Risk Level Risk Owner Service Sustainability High Ross McGuffie Workforce Sustainability High Ross McGuffie Oversight of Performance Activity Low Ross McGuffie Yes ☐ No ☐ N/A ☒
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5 7.5 ENGAGEMENT & PARTICPATION Please tick the engagement and participation objectives that link(s) with this piece of work and provide further details regarding the engagement and participation that was undertaken. Objectives Further Details ☐ Involve stakeholders in the development work aimed at achieving the national outcomes ☐ Provide stakeholders with information on how to get involved ☐ Ensure a diverse range of engagement and participation and opportunities are in place to suit different needs ☐ Measure how well we involve community stakeholders in the planning, design and delivery of our services ☐ Provide regular feedback on how stakeholder engagement and participation is shaping and influencing service development and delivery ☐ Provide support to enable stakeholder representatives to participate meaningfully and confidently at meetings ☐ Develop participation guidelines to ensure a common understanding and set of expectations for both stakeholders and partnership staff ☐ Support engagement planning and participation in localities, taking account of other engagement activity and local plans across the Community Planning Partnership 7.6 INEQUALITIES & FAIRER SCOTLAND DUTY EQIA Completed & Fairer Scotland Impact Assessment Form Completed and attached to report: Yes ☐ No ☐ N/A ☒
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6 EQIA added to website: 8. BACKGROUND PAPERS None. 9. APPENDICES Please include a glossary of terms if not already included. Appendix 1 Integration Joint Board Category 1 Responder Questionnaire 2023. CHIEF ACCOUNTABLE OFFICER (or Depute) Members seeking further information about any aspect of this report, please contact the following; Stacey Anderson Support Services Project Manager Stacey.Anderson3@lanarkshire.scot.nhs.uk Yes / Date added ☐ No ☐ N/A ☒
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7 Direction from North Lanarkshire Integration Joint Board (IJB) 1 Reference Number 2 Report Title 3 Date direction issued by IJB 4 Date from which direction takes effect 5 Direction to: 6 Does this direction supersede, revise or revoke a previous direction – if yes, include reference number(s) 7 Functions covered by direction 8 Full text of direction 9 Budget allocated by Integration Joint Board to carry out direction 10 Performance Management / Governance arrangements 11 Date direction will be reviewed
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8 Appendix 1 Integration Joint Board Category 1 Responder Questionnaire 2023. 1. Name of the Integration Joint Board Responding North Lanarkshire IJB. Given the close working arrangements in place in Lanarkshire, we have collaborated with our partners in South Lanarkshire in the development of our response. 2. Since the Integrated Boards became Category 1 responders in April 2021, how have they been represented within the LRP, at a strategic and tactical/operational level? Yes 3. Does the HSCP have up to date business continuity plans and when were these last reviewed? Yes. These are reviewed on an ongoing basis and put into practice. BCP reviews have been undertaken by all partners to ensure all learning is identified and form part of the agenda for the resilience meetings facilitated by the Chief Officer. 4. Are the roles and responsibilities of the IJB/HSCP fully embedded within the LRP multi-agency emergency plans, and how have you described these? Yes. The role the H&SCPs have in providing community health and social care support to emerging issues forms a core part of the multi-agency plans. The roles are described in the respective elements and are reviewed through our risk and governance structures. 5. How does the IJB/HSCP take part in assessing risk, writing plans, delivering exercises, debriefs and learning lessons with the resilience partnership? The H&SCP has a risk register that is shared with both the Council and NHS Lanarkshire. There is also a series of linked BCP planning review sessions, e.g. most recently Black start re loss of power and the two H&SCPs have contributed singularly and collectively to shared exercises. The H&SCP have also developed links to a Network within NHS Lanarkshire to help strengthen resilience in the event of a cyber-attacks.
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9 6. During a major incident and subsequent multi-agency response, how will the IJB/HSCP be alerted and what role will they take? Both H&SCPs are core members of the respective CMT and governance structures. There is also a 24/7 on call system that means the respective officers can be called to participate at all hours. The role the IJB/H&SCP will take will be dependent on the issue in question. For example, during the Wannacry Cyber- attack, the H&SCPs took a lead role in ensuring all general practice and other independent practitioners were protected as far as possible and also a supporting role in so far as they were part of the overall decision making structure that sought to identify where best to place resources to mitigate the impact of the event. As described earlier, the H&SCPs have taken a lead role in the response to Covid, with a series of lead roles across specific groups and particular responses, e.g. establishment of Community Covid Assessment Centres; creation of PPE hubs; development of Care Home and Care at Home Assurance structures; and managing the Covid and associated vaccines programme on behalf of the LRP. 7. Given the IJB/HSCP role in delivering health and social care services, how has the LRP linked in with the IJB/HSCP to develop local Care for People arrangements? (e.g., coordinating psychosocial services). Both H&SCPs are core members of the LRP and key players in the ‘Care for People’ arrangements described above. This ranges from direct provision of services, supporting rest centres, staffing MIST teams and so on. The HSCPs also have strong links with third sector organisations who provide vital supports as part of the care for people arrangements in any crisis response situation. 8. Do HSCP staff fully participate in LRP training? (please provide practical examples). Yes. HSCP staff participate in training organised by the council and by the NHS. the series of Black start and Exercise Steeple training exercises is the most recent of these, notwithstanding the lived experience of the last two years. 9. As the newest member of the Category 1 group of agencies, how can the IJB/HSCP better support the LRP and are there any clear gaps that need to be addressed? In Lanarkshire, both H&SCPs have been core members of the Lanarkshire LRP and associated structures. We are not aware of any gaps that need addressed.
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10 10. Since the introduction of IJBs as Category 1 responders, have you had to enact your resilience plans and what learning was identified (beyond Covid- 19)? There have been a few occasions where LRP arrangements have been utilised, these include the joint response to the arrival of Supported Asylum Seekers and Ukrainians and the need to mobilise services accordingly.
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11 Date: 25/04/2024 Agenda Item No: 10a Integration Joint Boards; Synopsis of Short terms Working Group Survey Purpose: FOR NOTING Background At the meeting of the West of Scotland RRP Strategic Group held on 31 March 2022, a short- term working group, comprising of IJB Chief Officers and others, was commissioned to conduct a survey of the partnership’s constituent IJB/HSCPs. Their task was to apprise the partnership of their resilience preparedness and integration into the wider resilience community following their categorisation as a Category One organisation in 2021. As part of the findings of this group, it was decided that the consultation would be repeated 12 months hence, to monitor progress and identify challenges that may have come to light in the preceding months. It was agreed that an additional questionnaire would be sent in November 2023 and that the question set would remain unchanged. Of the thirteen IJB’s in the West of Scotland RRP area, eleven responded. Question 1: ‘Since the Integration Joint Boards became Category 1 responders in April 2021, how have they been represented within the LRP, at a strategic and tactical/operational level?’ In keeping with the first questionnaire, there is evidence that all IJBs are represented at all three levels of command. Chief Officers continue to attend strategic groups, and in some cases delegate to senior colleagues. Examples were provided of integration in action, where the IJB’s have been involved in home care challenges, care for people planning, disruptive weather events and training and exercising events alongside LRP and agency partners. Question 2: ‘Does the IJB have resilience related risks reflected in its risk register and are these consistent across the LRP’ This is an area which shows improvement on how resilience has been incorporated into the IJB’s risk landscape. All the respondents confirmed that resilience specific risks were included in their risk registers, with many detailing the rigorous scrutiny mechanisms in place to ensure mainstreaming and governance. Although these processes vary across the IJB’s, there is evidence that resilience is now part of the planning process in each of the IJB’s that responded. Question 3: ‘Does the HSCP have up to date business continuity plans and when were these last reviewed?’ All respondents confirmed they had current business continuity plans, all of which appear now to have a 12-month review cycle, the latest of which was listed as April 2023. Evidence was provided that demonstrates these plans to be up to date and relevant in terms of the recognised national risks faced by public bodies, including disruptive weather and national power outage. Allied to this process is a commitment to incorporate Business Continuity into
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12 any relevant training and exercising opportunities which may avail themselves throughout the year. Question 4: ‘Are the roles and responsibilities of the IJB/HSCP fully embedded within the LRP multi- agency emergency plans, and how have you described these?’ All the respondents confirmed that IJB/HSCPs are fully embedded into their plans, primarily through the role of the HSCPs as the delivery arm of the IJBs. Evidence was provided that demonstrated an inclusion within civil contingencies planning and the development of Multi- Agency Response Guides (MAIRGs). The role of the IJB/HSCP in providing community health and social care forms an important part of any multiagency plan and is replicated in, broadly, similar ways across the LRPs, primarily within the Care for People arena. Although much progress appears to have been made in this area, there are still some challenges around IJB’s being seen as a ‘full planning partner’ within one of the LRP’s, however, this has been identified and will, no doubt, be progressed locally. Question 5: ‘How does the IJB/HSCP take part in assessing risk, writing plans, delivering exercises, debriefs and learning lessons with the resilience partnership?’ All the respondents highlighted a series of activities which demonstrated cooperative working with partners. This included participation in debriefs, the development and inclusion in exercises and simulations; membership of Contingency Planning Liaison Groups (CPLGs); inclusion in BCP reviews involving shared risk registers amongst partners and regular invitations to HSCP members to attend training and exercising opportunities within the LRPs. One respondent highlighted their inclusion in ‘Lunchtime Learning from Incidents’ which allowed partners to share lived experience from real incidents in an informal peer to peer environment. Evidence was also provided of the heightened use of Resilience Direct and the adoption of offline data storage to combat the impacts of a cyber or power related incident. Question 6: ‘During a major incident and subsequent multi-agency response, how will the IJB/HSCP be alerted and what role will they take?’ In keeping to their response to the first questionnaire, the respondents outlined a variance in the mechanisms of major incident response notifications. Several respondents articulated a clear understanding of tried and tested processes, typically routed through their Chief Executives/Officers or civil contingencies teams. Although no specific ‘on-call’ arrangements were evidenced, many highlighted that existing ‘on-call’ provision within the wider local authority structures would facilitate notifications of emergencies etc. Question 7: ‘Given the IJB/HSCP role in delivering health and social care services, how has the LRP linked in with the IJB/HSCP to develop local Care for People arrangements?’ All respondents highlighted established and well-developed local processes to address this question. Their ‘Care for People’ plans, either as a standalone or as part of wider multi-agency response plans forms the nucleus of their involvement. Evidence was provided of many IJB’s/HSCP’s being part of LRP Care for People Groups and taking part in exercising and training events, in addition to their inclusion within the LRP itself.
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13 Question 8: ‘Do HSCP staff fully participate in LRP training?’ All respondents commented that HSCP personnel are included within the training and exercising programme of their respective LRPs. This has included HSCP personnel being trained as Council Incident Officers, Loggists and Care for People managers. In addition, they have been included in a wide range of scenario-based learning including Cyber, National Power Outage, Terrorism, Mass Casualty / Fatality and Lithium Ion fires. Question 9: ‘As the newest member of the Category 1 group of agencies, how can the IJB/HSCP better support the LRP and are there any clear gaps that need to be addressed?’ All respondents were confident that well established relationships, fostered, in many cases, prior to the categorisation of IJBs, were working well and provide the necessary conduits between the respective organisations. There are numerous pieces of work ongoing at present to develop these, and partners are critically examining current processes to identify areas for improvement. The appointment of HSCP members as LRP sub-group chairs, additional resources being deployed to assist in the planning process, work to map out HSCP out of hours services and the critical services they deliver and research looking at diverting nursing staff and GPs to treatment facilities during incidents are just some examples cited by respondents in this developing area. Question 10: ‘Since the introduction of IJBs as Category 1 responders, have you had to enact your resilience plans and what learning was identified (beyond Covid-19)?’ All but one of the respondents have confirmed activation of their plans at some point during the previous twelve months. These have included Business Continuity plans in respect of Health & Social Care demands, particularly around care homes, ‘conventional resilience’ issues such as fires, residential evacuations, disruptive weather events, gas explosion and transportation disruption. In all the examples quoted, reference was made to the debriefing process and its utility in highlighting learning and identifying best practice. One respondent outlined their recognition of a potential gap in their data security process and how they were actively relocating key data to an offsite facility to mitigate the risk. Question 11: ‘Have you identified any specific actions to progress as a consequence of completing this self-assessment?’ Whilst most of the respondents did not identify specific actions, one highlighted that they have included the themes from this questionnaire into their annual Governance Assurance certificate, ensuring that strategic oversight is maintained. Another respondent identified a more operational action to address a potential shortage of loggists within their organisation.
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14 Conclusion & Recommendation This is the second resilience consultation to be conducted amongst IJB’s in as many years and it shows a steady improvement in how resilience is being mainstreamed. For all respondents, Civil Contingencies now plays an important part of the IJB/HSCP planning cycle, and significantly, IJB/HSCPs play an important part in the Civil Contingencies community in the West of Scotland RRP area. Despite the considerable demands on health and social care nationally, the respondents have provided evidence which shows their integration at Operational, Tactical and Strategic levels of the partnership. They are routinely involved in the mainstream planning processes and are beginning to take up key roles within the LRP structures. While IJB Chief Officers have been included in the distribution lists for RRP strategic correspondence for some time and HSCP reps too within LRP distribution lists for tactical/operational work locally, there was an acknowledged gap in HSCP reps not being routinely copied into tactical/operational correspondence from regional coordinators through the Business Coordination Group (BCG) – this gap has now been addressed with nominated HSCP reps for each IJB now added to all BCG level correspondence. Although not included in this summary report, the responses of the 11 IJB’s who took part can be found on Resilience Direct. Members are invited to note the contents of this report.