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| Is the success of the government’s troubled families scheme too good to be true? | Is the success of the government’s troubled families scheme too good to be true? |
| (about 2 hours later) | |
| When Sylvia Newton was pregnant with her fourth child, she had a nervous breakdown. “We had to have social services in because I wasn’t coping,” recalls Newton, 40. There had been concerns the children were being neglected and that the home was not safe. Antisocial behaviour was a problem, as was truancy. | When Sylvia Newton was pregnant with her fourth child, she had a nervous breakdown. “We had to have social services in because I wasn’t coping,” recalls Newton, 40. There had been concerns the children were being neglected and that the home was not safe. Antisocial behaviour was a problem, as was truancy. |
| Once the immediate safeguarding issues were less pressing, in February 2013, the family was referred to the local troubled families programme, in Brighton, East Sussex. A family coach, Becky Williams, worked intensively with all the family members, spending around four hours a week in their home and providing a lot of phone support. She sorted out the family’s benefits, worked with the housing department to organise renovations to their three bedroom council house, which had fallen into disrepair, and referred the parents to agencies to help get them back to work. | |
| There have been no incidents of anti-social behaviour or police called out to their home since the family completed the programme (there were nine police callouts in a six month period in 2012). The house is being kept clean and maintained and Newton feels her parenting skills have improved too. | There have been no incidents of anti-social behaviour or police called out to their home since the family completed the programme (there were nine police callouts in a six month period in 2012). The house is being kept clean and maintained and Newton feels her parenting skills have improved too. |
| In Coventry, the Bailey family, was referred to its troubled families programme in 2014 due to concerns about truancy and antisocial behaviour. When a key worker, Sharrone Galloway, went to meet Mark Bailey and his three sons, she found them living in appalling squalor. “In my 20-year career in children’s services, I have never seen living conditions like these,” she says. “There were no bedroom doors, no toilet or sink and the bath wasn’t plumbed in. They were having to climb over mounds of rubbish to use the outside toilet.” Discussions revealed that the mother had left nine years earlier, taking most of the fixtures and fittings with her. Bailey had been too depressed and proud to tell anyone what had happened and that he wasn’t coping. | In Coventry, the Bailey family, was referred to its troubled families programme in 2014 due to concerns about truancy and antisocial behaviour. When a key worker, Sharrone Galloway, went to meet Mark Bailey and his three sons, she found them living in appalling squalor. “In my 20-year career in children’s services, I have never seen living conditions like these,” she says. “There were no bedroom doors, no toilet or sink and the bath wasn’t plumbed in. They were having to climb over mounds of rubbish to use the outside toilet.” Discussions revealed that the mother had left nine years earlier, taking most of the fixtures and fittings with her. Bailey had been too depressed and proud to tell anyone what had happened and that he wasn’t coping. |
| Galloway spent months visiting the family most days, helping them declutter, clean up nine years of accumulated rubbish, redecorate, make the electrics safe, and install a new bathroom. She got the middle son on to a Prince’s Trust programme, referred the eldest, who was self-harming, to mental health services for support and helped find work for Bailey, who had not had a job for 20 years. “Without Sharrone, I don’t think I would be here,” says Bailey. She’s been an absolute rock. The more help we got, the more my depression would lift – I could see light at the end of the tunnel.” | Galloway spent months visiting the family most days, helping them declutter, clean up nine years of accumulated rubbish, redecorate, make the electrics safe, and install a new bathroom. She got the middle son on to a Prince’s Trust programme, referred the eldest, who was self-harming, to mental health services for support and helped find work for Bailey, who had not had a job for 20 years. “Without Sharrone, I don’t think I would be here,” says Bailey. She’s been an absolute rock. The more help we got, the more my depression would lift – I could see light at the end of the tunnel.” |
| Related: More than 105,000 households 'helped by troubled families programme' | Related: More than 105,000 households 'helped by troubled families programme' |
| Bailey and Newton are two of nearly 120,000 families the government claims to have “turned around” as part of its flagship troubled families programme (TFP). Launched in the aftermath of the 2011 riots, the £448m programme paid all 152 local authorities in England to identify and turn around so-called troubled families on their patch by May 2015 through an intervention that gave families a single key worker who coordinated services. Councils received up to £4,000 per family if an adult obtained continuous employment, children were back in school or if there was a reduction in antisocial behaviour or youth crime. | Bailey and Newton are two of nearly 120,000 families the government claims to have “turned around” as part of its flagship troubled families programme (TFP). Launched in the aftermath of the 2011 riots, the £448m programme paid all 152 local authorities in England to identify and turn around so-called troubled families on their patch by May 2015 through an intervention that gave families a single key worker who coordinated services. Councils received up to £4,000 per family if an adult obtained continuous employment, children were back in school or if there was a reduction in antisocial behaviour or youth crime. |
| However the TFP has been highly controversial, with critics questioning whether there really were 120,000 troubled families or whether they were just families meeting five measures of disadvantage including having no parent in work, living in poor quality housing and having a parent with a mental health problem. In 2013, the coalition government announced that from this year, the programme would be rolled out to a further 400,000 families with a wider range of problems including debt, drug and alcohol addiction, by the end of 2020. This month’s spending review will outline the remaining funding of the expanded programme. It may also establish a similar scheme for individuals with the most complex needs. | However the TFP has been highly controversial, with critics questioning whether there really were 120,000 troubled families or whether they were just families meeting five measures of disadvantage including having no parent in work, living in poor quality housing and having a parent with a mental health problem. In 2013, the coalition government announced that from this year, the programme would be rolled out to a further 400,000 families with a wider range of problems including debt, drug and alcohol addiction, by the end of 2020. This month’s spending review will outline the remaining funding of the expanded programme. It may also establish a similar scheme for individuals with the most complex needs. |
| In June, the prime minister praised the “total success” of the first phase of the programme, which he claimed had saved the taxpayer £1.2bn and turned around the lives of 99% of the families involved. But detailed analysis by Durham University academic Stephen Crossley for the Centre for Crime and Justice Studies, published on 11 November, concludes that “few of the claims made [about the TFP] stand up to any form of scrutiny”. Councils “have allegedly turned around almost the exact number of ‘troubled families’ they were required to work with,” despite the impact of welfare reforms, austerity policies and cuts to local authority budgets, the briefing states. “No social policy can expect to be 100% successful,” it says. | In June, the prime minister praised the “total success” of the first phase of the programme, which he claimed had saved the taxpayer £1.2bn and turned around the lives of 99% of the families involved. But detailed analysis by Durham University academic Stephen Crossley for the Centre for Crime and Justice Studies, published on 11 November, concludes that “few of the claims made [about the TFP] stand up to any form of scrutiny”. Councils “have allegedly turned around almost the exact number of ‘troubled families’ they were required to work with,” despite the impact of welfare reforms, austerity policies and cuts to local authority budgets, the briefing states. “No social policy can expect to be 100% successful,” it says. |
| Experts therefore question Cameron’s decision to expand the TFP. “It’s my very strong view that extending the programme on the basis that it’s a success when we simply don’t know that yet, is an appalling, completely irresponsible way to behave with taxpayers’ money,” says Jonathan Portes, the head of the National Institute of Social and Economic Research, who has been one the programme’s most vocal critics. | Experts therefore question Cameron’s decision to expand the TFP. “It’s my very strong view that extending the programme on the basis that it’s a success when we simply don’t know that yet, is an appalling, completely irresponsible way to behave with taxpayers’ money,” says Jonathan Portes, the head of the National Institute of Social and Economic Research, who has been one the programme’s most vocal critics. |
| In fact, the TFP is far from the runaway success the government claims it is. Freedom of information requests by Society Guardian to all councils taking part in phase 1 of the scheme show that in the 120 councils that responded, only 79,000 families were turned around through a “family intervention” – which is meant to be an integral part of the TFP. The research also found that more than 8,000 families in more than 40 local authorities had not received any kind of family intervention, but had instead been turned around solely on the basis of data-matching exercises. Councils, for example, might trawl through employment, youth crime and truancy data and identify a family that would have been eligible for the programme, and which, without receiving any help from the TFP, fulfilled the criteria for being turned around, because their school attendance had improved or one of the parents had found a job. | In fact, the TFP is far from the runaway success the government claims it is. Freedom of information requests by Society Guardian to all councils taking part in phase 1 of the scheme show that in the 120 councils that responded, only 79,000 families were turned around through a “family intervention” – which is meant to be an integral part of the TFP. The research also found that more than 8,000 families in more than 40 local authorities had not received any kind of family intervention, but had instead been turned around solely on the basis of data-matching exercises. Councils, for example, might trawl through employment, youth crime and truancy data and identify a family that would have been eligible for the programme, and which, without receiving any help from the TFP, fulfilled the criteria for being turned around, because their school attendance had improved or one of the parents had found a job. |
| Many councils said existing universal services had played a big part, contradicting the government’s portrayal of the TFP as the sole reason for families no longer being troubled. And far from being a 100% success rate, most authorities said they had worked with a significant number of families under the TFP whose lives had not been transformed. | Many councils said existing universal services had played a big part, contradicting the government’s portrayal of the TFP as the sole reason for families no longer being troubled. And far from being a 100% success rate, most authorities said they had worked with a significant number of families under the TFP whose lives had not been transformed. |
| The research also found that more than 8,000 families had not received any kind of family intervention | The research also found that more than 8,000 families had not received any kind of family intervention |
| “The idea that these families’ lives have been ‘turned around’ by this programme is a bad joke,” says Crossley. “We don’t know that any changes that have taken place in these families are down to the troubled families programme, as the FOI responses show, or how long such changes will last. Also, families can meet the government criteria for success while they are still experiencing, for example, poverty, unemployment, domestic violence, poor mental health and alcohol abuse.” | “The idea that these families’ lives have been ‘turned around’ by this programme is a bad joke,” says Crossley. “We don’t know that any changes that have taken place in these families are down to the troubled families programme, as the FOI responses show, or how long such changes will last. Also, families can meet the government criteria for success while they are still experiencing, for example, poverty, unemployment, domestic violence, poor mental health and alcohol abuse.” |
| Will McMahon, deputy director of the Centre for Crime and Justice Studies, adds: “The public administration committee and public accounts committee need to investigate the TFP and the government’s misleading claims about its success as a matter of urgency.” | Will McMahon, deputy director of the Centre for Crime and Justice Studies, adds: “The public administration committee and public accounts committee need to investigate the TFP and the government’s misleading claims about its success as a matter of urgency.” |
| But the government stands by the programme’s success. “All the evidence is rigorously audited and each claim made by a local authority represents measured improvements,” says a TFP spokesman. “The government is expanding this work so that more families can benefit from this innovative approach.” | But the government stands by the programme’s success. “All the evidence is rigorously audited and each claim made by a local authority represents measured improvements,” says a TFP spokesman. “The government is expanding this work so that more families can benefit from this innovative approach.” |
| Some names have been changed | Some names have been changed |
| My role shouldn’t need to exist | My role shouldn’t need to exist |
| In the 2015 budget, the chancellor, George Osborne, committed himself to finding ways to integrate spending and better support individuals struggling with homelessness, addiction, re-offending and mental health problems. | In the 2015 budget, the chancellor, George Osborne, committed himself to finding ways to integrate spending and better support individuals struggling with homelessness, addiction, re-offending and mental health problems. |
| It is estimated that in England there are around 58,000 people facing at least three of these problems at once. Campaigners and charities argue that those with the most complex needs are being failed by individual services and so spend their lives moving in and out of homelessness, prison, A&E and rehabilitation services, at an estimated cost to public services of £4.3bn. | It is estimated that in England there are around 58,000 people facing at least three of these problems at once. Campaigners and charities argue that those with the most complex needs are being failed by individual services and so spend their lives moving in and out of homelessness, prison, A&E and rehabilitation services, at an estimated cost to public services of £4.3bn. |
| “For too long, vulnerable people with multiple problems have been falling through the gaps between services,” says Christina Marriott, chief executive of the Revolving Doors Agency. At the same time, rising homelessness, welfare cuts and greatly reduced substance abuse services are putting more pressure on already overstretched services. | “For too long, vulnerable people with multiple problems have been falling through the gaps between services,” says Christina Marriott, chief executive of the Revolving Doors Agency. At the same time, rising homelessness, welfare cuts and greatly reduced substance abuse services are putting more pressure on already overstretched services. |
| This month’s spending review should spell out exactly how Osborne plans to integrate spending; his aim is “to improve cost-effectiveness”. A report by the thinktank IPPR in September called on ministers to allocate £100m for an intensive “troubled lives” scheme modelled on the government’s troubled families programme. But Marriott urges caution. “A targeted programme for the most excluded individuals is important, but it won’t undo the damage being done by other decisions by the government. It is a big opportunity, but only if the government gets it right. This can’t just be another big government payment-by-results scheme that misses those who need the most help.” | This month’s spending review should spell out exactly how Osborne plans to integrate spending; his aim is “to improve cost-effectiveness”. A report by the thinktank IPPR in September called on ministers to allocate £100m for an intensive “troubled lives” scheme modelled on the government’s troubled families programme. But Marriott urges caution. “A targeted programme for the most excluded individuals is important, but it won’t undo the damage being done by other decisions by the government. It is a big opportunity, but only if the government gets it right. This can’t just be another big government payment-by-results scheme that misses those who need the most help.” |
| For someone who has been in and out of prison, just been made homeless, suffering repeated mental health crises but not getting into services, and drinking to excess and self-medicating – a job isn’t their priority, she says. The life expectancy of a street homeless woman is 43. “For people facing this kind of extreme disadvantage, the first priority is stability: a roof over your head, some food in the cupboard, access to healthcare and intensive support that covers all your needs. It’s about ensuring people have the opportunity of seeing their 50th birthday.” There is a precedent for this kind of programme. The Making Every Adult Matter (Meam) coalition of criminal justice, homeless and mental health charities: Clinks, Homeless Link and Mind, has funded a number of pilot projects to improve services for individuals with multiple problems, through intensive support and better coordination. Independent analysis of a pilot in Cambridgeshire calculated it had cut costs by a quarter across the police, courts, NHS and local government, through reduced crime and substance misuse and improved physical and mental health. | For someone who has been in and out of prison, just been made homeless, suffering repeated mental health crises but not getting into services, and drinking to excess and self-medicating – a job isn’t their priority, she says. The life expectancy of a street homeless woman is 43. “For people facing this kind of extreme disadvantage, the first priority is stability: a roof over your head, some food in the cupboard, access to healthcare and intensive support that covers all your needs. It’s about ensuring people have the opportunity of seeing their 50th birthday.” There is a precedent for this kind of programme. The Making Every Adult Matter (Meam) coalition of criminal justice, homeless and mental health charities: Clinks, Homeless Link and Mind, has funded a number of pilot projects to improve services for individuals with multiple problems, through intensive support and better coordination. Independent analysis of a pilot in Cambridgeshire calculated it had cut costs by a quarter across the police, courts, NHS and local government, through reduced crime and substance misuse and improved physical and mental health. |
| Tom Tallon runs the chronically excluded adult service (CEA) in Cambridgeshire with £110,000 annual funding from the city council, county council and supported by Meam. Tallon says much of his role is about coordinating services. “In theory our role shouldn’t need to exist”, he says. “Any one of these services could bring everyone together, providing they can build the relationship with the client and have the time to do so.” Tallon points out that his team typically spends 6-8 hours a week with individuals at the outset. | Tom Tallon runs the chronically excluded adult service (CEA) in Cambridgeshire with £110,000 annual funding from the city council, county council and supported by Meam. Tallon says much of his role is about coordinating services. “In theory our role shouldn’t need to exist”, he says. “Any one of these services could bring everyone together, providing they can build the relationship with the client and have the time to do so.” Tallon points out that his team typically spends 6-8 hours a week with individuals at the outset. |
| Kitty Jones, 46, became homeless after a mental health crisis caused by historic domestic violence by her father. In 2014, South Cambridgeshire district council referred her to the CEA service. Jones says that despite having a degree in business law, she struggled to be listened to when she tried to get housing and a proper diagnosis for her post-traumatic stress disorder. “I am highly articulate, yet I couldn’t get my voice heard. I felt I’d stopped being a human being,” she says. “It was only because someone stepped in and helped me that I was listened to.” | Kitty Jones, 46, became homeless after a mental health crisis caused by historic domestic violence by her father. In 2014, South Cambridgeshire district council referred her to the CEA service. Jones says that despite having a degree in business law, she struggled to be listened to when she tried to get housing and a proper diagnosis for her post-traumatic stress disorder. “I am highly articulate, yet I couldn’t get my voice heard. I felt I’d stopped being a human being,” she says. “It was only because someone stepped in and helped me that I was listened to.” |
| That someone was Marie Ludlam, a case coordinator at CEA. “The day I came out of hospital [where she’d been sectioned], there were three or four organisations in my house telling me they were going to help. I am on medication and getting help from the hospital. Now I’m doing a course in improvisation and have started to play the piano again. I’d like to regain the skills I used to have.” AB | That someone was Marie Ludlam, a case coordinator at CEA. “The day I came out of hospital [where she’d been sectioned], there were three or four organisations in my house telling me they were going to help. I am on medication and getting help from the hospital. Now I’m doing a course in improvisation and have started to play the piano again. I’d like to regain the skills I used to have.” AB |
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