1 Summary

1.1 This report sets out in outline plans to introduce `Family Mentoring' services in Hampshire on a phased basis in the financial year 2005/6, building on earlier work in 2004.

1.2 Hampshire County Council Corporate Strategy: the development of family mentoring supports the County Councils corporate aims, in particular its priority for improving the quality of life for children in need as described in Aim 1, Aim 4 - building strong and safe communities, and Aim 5 - improving services.

1.3 Race Relations (Amendment) Act: Government Regulations and Inspection arrangements specify requirements concerning racial (and other forms of) discrimination. Compliance with the Act in terms of carrying out an Impact Assessment is confirmed, forming part of the programme of work relating to the Department's Service Plans.

1.4 The Hampshire Compact: plans and any negotiations and agreements will be in accordance with the Compact between Hampshire County Council and the voluntary sector.

2 Background

2.1 The Children Act 2004 underpins the five key outcomes described in `Every Child Matters', and in doing so has set out new statutory responsibilities for local authorities. The proposals for family mentoring services in Hampshire need to be seen in this context.

2.2 The new legislation and associated government guidance continue to emphasise the importance of early intervention for children at risk of poor outcomes and more support for parents and families finding it difficult to cope.

2.3 The Hampshire Children's Services Board as part of its oversight of Hampshire's implementation of the Children Act is evaluating which services currently managed through Social Services or Education will bring benefits from being integrated at or close to the point of delivery.

2.4 There are clear opportunities to include work from the New Zealand Study Tour action plan already reported to Cabinet which will improve outcomes, and support the County Council's approach to building on family strengths, whilst recognising the local community as key to the delivery of services. Russell Martin, Chief Executive of Open Home Foundation New Zealand has continued to offer support and advice.

2.5 The Department recognises the importance of building organisational capacity. It is in this regard that significant challenges confront the department given the budget pressures experienced in 2004/5 and the anticipated demand in the new financial year, as described in a recent report to the Executive Member on the 2005/6 Budget, in which it was reported that although the number of children and young people in Hampshire's population is not increasing, their needs for services are, as described in a number of national studies, referring to "statistical indicative of a spectrum of need and behaviour difficulties........the extreme end of which frequently requires Social Services' intervention."

3 Family Mentoring

3.1 There is a long and successful tradition of the use of volunteers in social work. There have been a variety of schemes operating in Hampshire and elsewhere over the years which have used what could be called broadly a mentoring approach to support those experiencing difficulties in coping. The schemes have varied in terms of the type and extent of difficulty addressed, but typically involve a `one to one' relationship commitment over time, offering support using life experience or skills drawn from the mentor's own profession or occupation. Mentors are usually volunteers with a statutory organisation retaining casework or other formal responsibility.

3.2 The proposed service model in Hampshire involves using a mentor in the manner of a `supportive friend' to parent/s or other formal carers who are struggling to cope and in that sense the focus is not 1:1 but of a more family group inclusive nature. The model was described in the `New Zealand Study Tour' Report to Cabinet in June 2004.

Family Mentoring has been variously described as:- "Taking time to listen, to encourage, to help the family identify solutions or ways through difficulties, and to walk with them on the journey for a little while.", and, "Mentors build committed, trusting relationships. They listen. They offer understanding and respect. They help families overcome challenges and disappointments and celebrate successes."

3.3 Key objectives of the mentoring programme include:-

3.3.1 Intervention in family disfunction at an early stage before issues become chronic, and

3.3.2 To provide follow-up support after intensive social work intervention.

and help parents and carers to:-

3.3.3 Discover solutions and ways of managing the issues confronting them, and

3.3.4 Develop skills and resources so their families are strengthened and they can nurture and care for their children successfully.

3.4 The intention is to commission voluntary organisations to run family mentoring programmes, using volunteers to a common specification in terms of central structure, training, expertise and accountability. Activity will be determined by referrals from Social Services.

4 Implementation

4.1 The New Zealand model in terms of the type of service, and the use of the voluntary sector including faith groups, as key providers have been actively pursued. A half day conference was held in October 2004 to which a wide range of existing and potential partners and providers in the voluntary sector were invited. The conference was used as an opportunity to set out the Department's aspirations, the perceived role of the voluntary sector using the Hampshire Compact to underpin the approach, and the challenging resource context in which both Social Services and the voluntary sector operate.

4.2 The response overall has been positive albeit tempered by varying degrees of anxiety concerning such things as capacity, skills base, sustainability and financial stability. A number of meetings have been held with individual organisations, leading to an early stage of negotiation with particular bodies; these include Home-Start schemes, the Hampton Trust, Barnardo's and the Diocese of Portsmouth's Council for Social Responsibility, each of these organisations, and others who may well become interested, bring their own particular values, skills and community roots to the strategy. Barnardo's as an experienced national provider is interested in taking on a support and development role to local voluntary and community organisation providers in partnership with Social Services.

4.3 The detailed service specification is currently being finalised, which will signal the next stage of the project, that of detailed negotiation. Given the significance of this initiative for Social Services in augmenting the level of direct support which vulnerable families are currently able to receive from the service's own workforce, the difficult and limited funding currently available, it is proposed that family mentoring be introduced on a phased basis, using a combination of those organisations which seem already `fit for purpose' and targeting those areas in the County with greatest need, to create a series of pilot schemes which will be evaluated in order to inform future direction. Work is also underway with the Education Department in the context of the Children Act development work to make best use of resources and opportunities.

4.4 It is envisaged that the first schemes will get underway in late autumn 2005. This timetable will be partly dependent upon some key providers in the voluntary sector being able to secure financial stability for which in most instances they look to the County Council, at least in part.

5 Costs

5.1 The proposals represent an increase in organisational capacity in line with Government expectations, but will have to be managed within available resources, which will include seeking to identify recycling of current resources where possible in order to secure investment.

Key elements include:-

5.1.1 Confirmation of current funding arrangements of Home-Start schemes seeking to increase where appropriate and feasible.

5.1.2 Confirm investment proposals for Hampshire from Barnardo's - approximately £25k. This is a one-off payment in the first instance, which it is hoped could be made permanent if the initiative proves successful.

5.1.3 Allocate £25k pump-priming from Social Services base budget.

5.1.4 The involvement of the Portsmouth Diocese in the South-East of Hampshire (excluding Portsmouth City).

5.1.5 Secure funding / contributions in-kind from interested voluntary / faith organisations, and other statutory partners.

5.1.6 The Performance Management Unit in Social Services will undertake an evaluation of the service development overall.

6 Conclusions

6.1 The introduction of family mentoring services of the type and in the way proposed provides the opportunity to respond to service developments required in Hampshire as described in recent inspections, reviews and new legislation, whilst increasing organisational capacity within available resources, and in a fashion which can be sensitive to developments in integrated services with Education in terms of family support.

7 Recommendations

It is recommended that the Executive Member:

7.1 Approves the proposals for service developments regarding Family Mentoring, using pilot schemes in the first instance.

7.2 Receives future reports on progress and any related development proposals.