Single Authority Model - Update
Argyll and Bute Council · 10 October 2024
Back to Policy and Resources Committee — 10 October 2024 and its agenda
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ARGYLL AND BUTE COUNCIL POLICY & RESOURCES COMMITTEE CHIEF EXECUTIVE 10 OCTOBER 2024 SINGLE AUTHORITY MODEL - UPDATE 1.0 EXECUTIVE SUMMARY 1.1 A report was tabled at the Policy and Resources (P&R) Committee held on 7th December 2023 to advise Members that Scottish Ministers had formally welcomed the Council’s involvement in discussions regarding the development of alternative governance models, such as a Single Authority Model (SAM). 1.2 This paper provides Members with an update on the key activities that have been undertaken in the interim period. 1.3 It is recommended that Members:- • Consider the updates regarding the ongoing work in respect of a SAM, as set out at 4.3 and 4.4; and • Note that further progress reports will be prepared for future meetings of the P&R Committee.
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ARGYLL AND BUTE COUNCIL POLICY & RESOURCES COMMITTEE CHIEF EXECUTIVE 10 OCTOBER 2024 SINGLE AUTHORITY MODEL - UPDATE 2.0 INTRODUCTION 2.1 A report was tabled at the P&R Committee held on 7th December 2023 to advise Members that Scottish Ministers had formally welcomed the Council’s involvement in discussions regarding the development of alternative governance models, such as a SAM. 2.2 This paper provides Members with an update on the key activities that have been undertaken in the interim period. 3.0 RECOMMENDATIONS 3.1 It is recommended that Members:- • Consider the updates regarding the ongoing work in respect of a SAM, as set out at 4.3 and 4.4; and • Note that further progress reports will be prepared for future meetings of the P&R Committee. 4.0 DETAIL 4.1 Argyll and Bute is made up of a rich mix of remote, rural and island communities, which present a number of challenges in terms of service delivery. In recognition of the unique demographics and geography, and the numerous strands of public sector reform that the Scottish Government has committed to, we are making a shift in public sector structures through increased collaboration and joint working. However, there is a need to build on this in order to address the challenges we face and to realise the full potential of the area, via a whole system approach such as a SAM. 4.2 Public sector service sustainability in Argyll and Bute requires a multi-agency integrated model, a variety of hyper local delivery models, robust infrastructure, and the coordination of planning and commissioning for the longer term, which supports public sector organisations to meet their legislative and public duties.
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4.3 Since the previous update provided to members at the P&R Committee in December 2023 the Council have been continuing to work with the Scottish Government and key partners on developing the concept of a SAM for Argyll and Bute. A summary of the key activities undertaken are provided below:- 4.3.1 Engagement with NHS/HSCP colleagues A workshop was held on 12 December 2023 with a range of colleagues from across the Argyll and Bute HSCP and NHS Highland to consider the key drivers and benefits of looking at alternative governance arrangements for Argyll and Bute, for example:- improved outcomes for communities; build on current levels of integration; development of partnership working/joint planning at a strategic level; bespoke/place based approach to service delivery; local decision making/democratic control; and transformational opportunities. Consideration was also given to what other public sector bodies could potentially form part of a single authority model. Regular updates are also provided to the HSCP Leadership Group, which has representation at a senior level from across the Council, HSCP and NHS Highland. The latest of these updates were provided at their meetings held in April and August this year. 4.3.2 Engagement with Scottish Government Officers are in regular contact with senior civil servants in the Scottish Government (SG) with regard to the development of proposals for a SAM in Argyll and Bute. Detailed below is a sample of some of the key engagements we have had so far, and which are planned:- i. 12 June 2024 – formal start up meeting held with senior SG and COSLA Officers to provide a briefing on the local drivers for reform and to discuss the current range of options being explored, including the potential scope of a SAM in Argyll and Bute. Arising from this meeting, Officers were asked to provide the SG with details of any specific support required to enable us to develop our thinking around a SAM and progress matters. On this basis, we have prepared two key documents for the consideration of the Director’s Working Group (see iii below) being set up – a) a request for expert assistance to enable us to fully understand the NHS Governance Frameworks that currently operate in Scotland, which will allow us to examine some of the proposed models for a SAM in further detail; and b) consideration of our initial thoughts in terms of what the totemic issues/barriers to acceptance could be in relation to any SAM proposals (e.g. NHS brand identity, protection of professional status, professional/clinical and care governance, stability of workforce, including terms and conditions etc.). The development of these key guiding principles will help to ensure that when engaging with stakeholders, all parties are clear from
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the outset regarding what is on or off the table in relation to the development of possible SAM proposals for Argyll and Bute. ii. 29th July 2024 – Ivan McKee MSP, Minister for Public Finance, who has public sector reform as part of his remit, visited Lochgilphead on 29th July to discuss our vision for a SAM and undertook a site visit to Mid Argyll Hospital to understand the current levels of integration and partnership working. This was a very positive introductory meeting with the Minister, who noted his intention to follow up on this initial discussion by holding a joint meeting between Argyll and Bute and Western Isles Council, who are at a similar stage in terms of developing SAM proposals. A date for this session has been set for 26th November 2024. iii. Directors Working Group – a Directors Group has been established by the SG, consisting of 7 key Directors with local authority and NHS interests, to act as a sounding board in respect of the SAM work and to be a source of expertise for the relevant policy development areas. An initial meeting of the Group was scheduled for 29th July but coincided with the Ministerial Visit and is therefore being re-arranged by SG. A date has still to be determined. iv. Roundtable discussions – the SG have undertaken two round table discussions, involving academics and former public sector leaders, to further develop the evidence base for alternative governance models, by drawing on independent and objective perspectives. To date, local authorities have not been involved in these events, however a further session is being arranged in the Autumn to explore the combined findings and outcomes. 4.3.3 Engagement with Western Isles and Orkney Councils The Council has been engaging with the Island authorities, who have been considering SAM/Single Island Authority models for an extended period of time, to learn from their experiences and to work in partnership, where possible. Western Isles are at a similar stage in the process to Argyll and Bute and we have collaborated positively with them on a number of fronts, including the co-development of the documents referred to at (i) above, and will continue to work with them on a joint basis moving forward. 4.3.4 Engagement with other public sector partners The options that have been identified to date (as per section 4.4. below) have focused on possible models involving primarily the Council, HSCP, and NHS Highland. However, there is scope to widen out a SAM to involve other public sector bodies within the area, and Officers have begun engaging with key local partners to share our initial thoughts and to obtain their feedback. Meetings with UHI Argyll and ACHA have been scheduled for late September and October,
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respectively. Members will be kept appraised of the outcome of these meetings. 4.3.5 Elected Member engagement Councillors have been provided with regular updates in respect of the SAM proposals, and wider public sector reform, since we received formal notification of our involvement in discussions in September 2023. For example, via Members Seminars, regular reports to P&R Committee, and briefings/presentations. The latest update was provided to all members at a seminar held on 24th September. 4.4 Options currently being explored 4.4.1 A summary of the options which have been identified to date are detailed below:- (i) Status Quo This option would be a continuation of the current structures with the retaining of the Health and Social Care Partnership with governance through the Integrated Joint Board. (ii) Community Planning Plus This model would be based on the current Community Planning Model (building on the provisions of the Community Empowerment (Scotland) Act 2015) and would maintain separate organisations. It would give the opportunity to pool budgets, but employees and structures would remain separate. (iii) Integrated Authority This model would establish an elected single legal entity which would have fully integrated service budgets and would be empowered by elected status to give clear and accountable leadership. The Authority would create specific Boards or Committees which would provide the governance and decision-making structures required to ensure that resources and services are managed effectively. A new scheme of public sector legislation would be required in order to implement a model such as this. (iv) A Fully Empowered Local Board This model would strengthen the current IJB structure with fully integrated services and retain local accountability linked to the partner organisations governance arrangements. As this model would proceed under the context of the Public Bodies (Joint Working) (Scotland) Act 2014, it could use this existing legislative scheme to
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build on the existing synergies between the Council and NHS in the first phase of implementing this model. (v) Single Authority Partnership This model could be consider a variant of the Lead Agency arrangement under the banner of a “Single Authority Partnership”. This could take effect by conducting a review of the current Integration Scheme (Under Section 45 of the 2014 Act), preparing a new Integration Scheme (under Section 47 of the 2014 Act, and subsequently through the use of Directions (issued under the 2014 Act). Under such a Strategic Lead Agency arrangement, there would be no transfer of staff – only functions and resources. 4.4.2 These options will be examined further once Officers have had the opportunity to develop their understanding of the NHS Governance frameworks which currently operate in Scotland, and have a fuller appreciation and insight into the key barriers/opposition that may arise in respect of a SAM. Expert advice and support in respect of these matters has been sought from the SG/Directors Group, as set out at section 4.3.2 (i) above. 4.4.3 Officers will also have regard to the ongoing development of the National Care Service (Scotland) Bill, which has the potential to influence what is possible in terms of a SAM. For example, the recent call for views on the Stage 2 Amendments to the Bill seemed to propose the removal of the Lead Agency Model, which will impact on our further consideration of options. 4.5 Further update reports will be prepared for future P&R Committee meetings to keep members informed of developments. 5.0 CONCLUSION 5.1 Officers have been engaged in ongoing discussions with the SG and have participated in a number of information and development sessions with key partners such as HSCP and NHS Highland to develop our thinking around what a SAM could look like for Argyll and Bute. A summary of the key activity undertaken since the last update is set out at 4.3 and 4.4 above. 6.0 IMPLICATIONS 6.1 Policy; currently none but with the potential for significant implications due to emerging national policies. 6.2 Financial; none at present - exploration of a SAM will consider any financial implications arising. 6.3 Legal; a review of all relevant legislation will be undertaken as part of the development of any options for a SAM. Depending on the preferred model identified, new legislation may be required.
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6.4 HR; none at present – as the proposals develop there may be a requirement for additional resource to support this work. 6.5 Fairer Scotland Duty: none 6.5.1 Equalities - protected characteristics; none arising from this report 6.5.2 Socio-economic Duty; none arising from this report 6.5.3 Islands; none arising from this report 6.6. Climate Change; none. 6.7 Risk; failure to explore options for the best model for our communities and influence the national development of reforms. 6.8 Customer Service; none arising from this report 6.9 The Rights of the Child (UNCRC); none arising from this report Pippa Milne - Chief Executive Councillor Jim Lynch – Leader of the Council September 2024