Archived decisions

HAMPSHIRE COUNTY COUNCIL

Decision Report

1. Executive Summary

1.1. The purpose of this report is to set out proposals for a new senior management structure in the Culture, Communities and Rural Affairs Department. It seeks approval to replacing the five existing Head of Service roles with three Assistant Directors and to continuing the consultation on proposals for other consequential changes in the structure below Assistant Director level.

1.2. The report:

· Outlines the reasons for undertaking a review of the Culture, Communities and Rural Affairs management structure at this time

· Sets out the objectives and principles that have underpinned the review and the proposals flowing from it

· Describes the process followed in undertaking the review

· Details the proposed new senior management structure and ways of working

· Provides a comparison between the existing and the proposed senior management structure

· Describes the new Assistant Director roles and responsibilities

· Outlines the proposals for the management structure below Assistant Director level

· Sets out the proposed timetable and process for further consultation and implementation.

2. Introduction

2.1. The existing service-based management structure of the Culture, Communities and Rural Affairs Department is largely unchanged from that put in place when the Department was formed, as Recreation and Heritage, in 2002. Since then, there have been significant changes in the national and corporate context within which the Department works (see Appendix 1). The time was ripe to assess the relevance and effectiveness of the current management approach in the Department and decide whether any changes might be needed to meet the challenges it will face in the future

2.2. The review was initiated last year with the overall purpose of ensuring that the structures and ways of working in the Department:

· Encourage creativity and innovation,

· Make the best use of talent, and

· Remove any barriers to effective cooperative working between services.

2.3. Early consideration of the context for the review highlighted the importance of ensuring that the services provided by the Culture, Communities and Rural Affairs Department are increasingly responsive to the needs of local communities and can contribute effectively to achievement of key County Council objectives. As a result, the following specific objectives were set for any proposals for change that came out of the review:

· Clear and effective leadership for the Department

· Maintain and improve service quality

· Increased strategic capacity for partnership working

· Increased responsiveness to communities at a local level

· Greater integration of services where this enhances the offer to the public

· Identification and delivery of efficiency improvements.

3. Review Process

3.1. The review has been undertaken by the Departmental Management Team (DMT) working collectively, in small project teams and individually. Senior managers and other staff across the department have been consulted at various stages, as have the relevant Trades Union representatives. The main features of the review activity to date are as follows:

4. Senior Management Structure

4.1. Appendix 2 shows the current senior management structure of the Department. Appendix 3 shows the proposed posts in the new senior management structure. This section of the report explains the new senior management roles and the implications for the management structures and responsibilities below Assistant Director level.

Assistant Directors

4.2. Most operational services will be grouped under three Assistant Directors. Their responsibilities are set out in Appendix 4 together with an outline role profile. With the Director, these posts will form the core of the new DMT. They will replace the five "Head of Service" posts in the existing structure, but will have a distinctly different emphasis to reflect the factors discussed in paragraph 2 above.

4.3. In addition to their service leadership roles, the Assistant Directors will also have responsibility for leading and coordinating activity across the department around the following priority themes:

Health and Wellbeing

Older People and Personalisation

Children, Young People and Families (including Learning Outside the Classroom)

Locality Working (including action for deprived urban communities)

Rural Policy

4.4. The intention is that the Assistant Directors will also have capacity to provide direct support to the Chief Executive by leading and coordinating corporate projects alongside their departmental roles.

4.5. The Assistant Directors will provide strategic leadership for services, but in view of their very significant cross-service and corporate roles they cannot be expected to manage their services directly on a day to day basis in the manner of the current Heads of Service. This will be the responsibility of service managers working to the Assistant Directors. The old Head of Service roles have been split, effectively, between the Assistant Directors and Service Management Teams.

Adult and Community Learning

4.6. Hampshire Learning - the County Council's community and adult learning service - transferred to the Culture, Communities and Rural Affairs Department from the Children's Services Department in April 2008. Since then it has been working increasingly closely with other Departmental services to improve the informal learning offer in Hampshire. The intention is that there should be even greater integration in the future. However, the recent publication of the government's "Learning Revolution" White Paper points to significant changes in the area of informal learning. In terms of Departmental structure, the proposal is that leadership on informal learning will be provided initially by the Director, with the Head of Community and Adult Learning working directly to him.

5. Ways of Working

5.1. This section of the report summarises proposals for a radical change in the day to day working of the Culture, Communities and Rural Affairs Department. Although the approach set out here is already used effectively in some areas, it needs to become established practice across the Department to complement the changes in structure and roles and ensure the success of the new arrangements.

Planning

5.2. In future there will be a single Departmental business plan identifying clear priorities, objectives and actions built around the priority themes set out in paragraph 4.3 above. Services will incorporate these actions in their operational planning, which will support performance management at the service, team and individual levels. Budget and workforce planning will be integrated with the departmental business plan and operational plans.

Matrix Management

5.3. The new structure will be supported by a "matrix management" approach i.e. line management will take place within the group, service and team structure, but staff will increasingly work in project groups, often across services, and will receive direction from project leaders as well as line managers. Effective communication between line managers and project leaders will be needed to identify and resolve any conflicts in priorities for individuals and ensure that appropriate links are made with Individual Performance Plan (IPP) targets and development plans. In future, IPP target setting will not be undertaken solely by line managers but will need to take account of project requirements.

Project Management

5.4. A more rigorous approach to project management will be needed throughout the Department, but the arrangements put in place will be appropriate to the scale of the task. Many of these projects will be established on a "task and finish" basis, but some will be on a more permanent basis . These will include project teams that will have the role of supporting Assistant Directors in the development of the Departmental business plan, delivery of its actions and achievement of its objectives. Project teams may well include staff from outside the Culture, Communities and Rural Affairs Department.

Departmental Working Groups

5.5. The purpose, responsibilities, membership and activities of all Departmental working groups will be aligned with the matrix and project management. All such groups will in future operate with clear terms of reference, objectives, authority (including budgets), accountability and methods of communication. "Local Liaison Teams" will be set up on a geographical basis to:

· Help Assistant Directors ensure that the Departmental business plan meets local needs

· Coordinate service activity at the local level, and

· Liaise with District Councils and local partnerships.

Communications

5.6. There will be a much more systematic and consistent approach to external and internal communications. A communications framework will be put in place to support the Assistant Directors in their thematic lead roles. Similar arrangements will be made to support Departmental working groups and project teams.

Skills Development

5.7. There will be a programme to assist staff in developing the skills needed to work effectively in these new arrangements, particularly around understanding emerging challenges and project-based working, with opportunities for short term secondments to make best use of the talent and skills within the Department

6. Service Group Management Structures

6.1. Appendices 5 to 9 have recently been made available to staff in the Culture, Communities and Rural Affairs Department. They set out the proposals developed by DMT for the management structures below the Assistant Directors as the basis of further consultation with staff in the Department. Assistant Directors will spend less time than the old Heads of Service on operational management. As a consequence, the roles of other managers will need to change to ensure effective management of service delivery and continuing service development and improvement in the context of the Departmental business plan.

6.2. The existing service configurations are retained in this new structure, but there is an expectation of greater integration of service planning within and between the groupings and, where appropriate, greater operational integration.

6.3. There is a continuing need for certain specialist roles to support service quality and links with key partners, particularly where this involves significant external funding. The post of Head of Sport and Healthy Lifestyles includes responsibilities as Director of Sport Hampshire and Isle of Wight for the effective management of substantial funding provided by Sport England and the Department of Health. The post of Head of Arts, Museums and South East Museums Hub will be fundamental to fulfilling the County Councils obligations to the Museums, Libraries and Archives Council (MLA) on the leadership and management of the partnership of museum organisations in South East England under the MLA's Renaissance programme. Again, this involves the effective management of significant funding provided directly by MLA.

7. Departmental Support Services

7.1. The proposals contained in this report do not cover the essential Departmental support services (IT, research and intelligence, marketing, performance management, capital project management, risk management, health and safety policy and compliance etc.). Appropriate arrangements for the organisation and management of these functions are being developed alongside the senior management and operational proposals and will be available for consultation later in the summer.

7.2. The proposals on support functions will need to take account of the outcomes from the Corporate Services Reviews reported to Cabinet in March and April this year. In particular, the implications of the IT Services and Procurement reviews can be expected to have a significant impact on Departmental support services.

7.3. The proposed organisation chart of the senior management structure for the Department (Appendix 3), includes the senior support service roles on a provisional basis in their current form, pending the completion of the support services review.

8. Workforce and Finance

8.1. The workforce implications of the current proposals set out in this report can be summarised as follows:

· 23 existing posts proposed for deletion from the organisational structure

· 19 new posts proposed to be added to the organisational structure (including the South East Museums Hub lead role)

· A net reduction of 4 posts overall.

8.2. A management assessment has been made on the grades relevant to the roles set out in the proposed structure. This will need to be confirmed formally by evaluation panels scheduled for later in the summer. Based on this assessment, the current proposals would result in a net reduction in management costs, assuming current salary levels and mid points of grade. It is anticipated that moving to the new structure will give rise to one off and short term costs and these costs will be funded from the Departmental budget. The precise budgetary implications cannot be calculated accurately at present as they depend on decisions to be made during the implementation phase. Nevertheless, budget planning is proceeding on the basis of "worst case" estimates.

9. Timetable and Process for Further Consultation and Implementation

9.1. On the basis of the recommendations set out on paragraph 10 of this report, the proposed timetable for the completion of the review and implementation of proposals is as follows:

9.2. The details of the proposed arrangements for moving from the existing structure and roles to the new ones are set out in a draft transition protocol, which is currently being consulted on alongside the structure proposals. This reflects current County Council policies in this area and is designed, wherever possible to:

· Create safeguards for existing employees

· Limit disruption and make change only where this helps to achieve the overall objectives of the review

· Minimise anxiety of staff

· Seek to take account of the wishes of staff

· Recognise the value of staff currently in post

9.3. The recruitment arrangements for the Assistant Director posts will, in the first instance, involve a ring fence for existing Heads of Service or Acting Heads of Service in the Culture, Communities and Rural Affairs Department. There will be an opportunity for Member input to the recruitment process.

9.4. It is proposed that two posts in the operational management structure are recruited alongside the Assistant Directors:

Head of Community and Adult Learning - the role profile for this post is unlikely to change significantly from the existing one, at least in the short term. Under the terms of the draft transition protocol, the current postholder would slot into this role. However, the postholder will retire during the autumn and a replacement should be in post as soon as possible, ideally with a short overlap, to ensure continuity at a critical time for Hampshire L Learning.

Head of Arts, Museums and South East Museums Hub - this is a new role agreed with and partly funded by the MLA under its Renaissance programme. The role replaces the current Acting Head of Museums, who is also due to retire in the autumn. Hub management is currently being undertaken on an interim basis by a consultant employed by MLA. This arrangement comes to an end in December.

9.5. Both of these post will be advertised externally, although existing County Council staff will be able to apply if they choose.

10. Recommendations

That the Executive Member for Culture Communities and Rural Affairs:

i. Endorses the outcomes from the Culture, Communities and Rural Affairs Department management review

ii. Endorses the priority themes for the Culture, Communities and Rural Affairs Department set out in paragraph 4.3 of the report

iii. Approves the senior management structure set out in Appendix 3 to the report

iv. Approves the recruitment to the three Assistant Director posts

v. Approves the selection for the three Assistant Director posts by a formal member appointment panel in accordance with Section 41 of the County Council constitution

vi. Approves the recruitment to the posts of Head of Community and Adult Learning and Head of Arts, Museums and South East Museums Hub for the reasons set out in paragraph 9 of the report

vii. Approves continuing consultation on the operational management and support service proposals

viii. Endorses the timetable for completion and implementation of the review.

CORPORATE OR LEGAL INFORMATION:

Links to the Corporate Strategy

Integral Appendix B

IMPACT ASSESSMENTS:

1. Equalities Impact Assessment:

1.1. The proposed management arrangements for the Culture, Communities and Rural Affairs Department are designed, in part, to ensure that services are delivered effectively to all parts of the community. It is therefore expected that the proposals will have a positive effect on equality and diversity

2. Impact on Crime and Disorder:

2.1. It is expected that the proposals will have no direct impact on crime and disorder.

3. Climate Change:

a) How does what is being proposed impact on our carbon footprint / energy consumption? No impact.

b) How does what is being proposed consider the need to adapt to climate change, and be resilient to its longer term impacts? No impact.

Appendix 1

Culture, Communities and Rural Affairs Department - Management Review

Context for the Review

National Perspective

In October 2006, the government published its "Strong and Prosperous Communities" White Paper. The proposals it contained were subsequently enacted in the Local Government and Public Involvement in Health Act 2007.

This legislation had some significant implications for local authorities.

· Top tier local authorities (counties and unitaries) are now required to lead the development of "Sustainable Community Strategies" for their areas with local partners, setting out key priorities for improvement in the economic, social and environmental wellbeing of their area over a ten year period.

· These Strategies will form the basis of statutory "Local Area Agreements" between the local partners and government, setting specific targets for improvement over a three year period.

· The old Corporate Performance Assessment (CPA) and Best Value Performance Indicator regimes for monitoring local authority performance were abolished and replaced by Comprehensive Area Assessments (CAA). These assessments will focus on how well public sector partners in local areas (local authorities, police, health, fire and rescue etc.) understand local needs and act together to improve outcomes for local people.

· In response to these changes, the Department for Culture, Media and Sport, The Local Government Association and the Improvement and Development Agency produced a joint national strategy for improving cultural services - called "Passion for Excellence". This was published in March 2008¹ and revised in March 2009². It sets out a framework for improvement activity in cultural, sport and leisure services to be organised on a regional basis and led by local government rather than central government and its agencies. The first steps in setting up a cultural services improvement partnership for South East England are now being taken. Hampshire authorities, including the County Council, have been instrumental in this development.

These developments will all have a major influence on the Culture Communities and Rural Affairs Department over the next few years.

Hampshire Perspective

In response to the national developments, Hampshire County Council has moved to strengthen its partnerships inside and outside the county. On the initiative of the Leader of the County Council, a "Hampshire Senate" has been established bringing together the political leaders of all the local authorities in Hampshire and the Executives of the health, police and fire and rescue authorities. The Senate is becoming increasingly influential in shaping the Hampshire approach to the challenges of the 2007 Act and leading on greater cooperation between public sector bodies. This is creating a very strong emphasis on partnership working and more effective cooperation between public authorities at the community level.

Under its new Chief Executive the County Council has started to overhaul its corporate management arrangements.

· Reviews have been completed on the corporate services of the Council and the changes resulting from these are now being put in place

· The Corporate Business Plan and existing performance management arrangements have been radically redesigned around a Corporate Improvement Plan setting out improvement priorities for the County Council and giving named individuals leadership responsibilities across the Council. The Culture, Communities and Rural Affairs Department currently has responsibility for three of these priorities - improving the cultural offer for young people and older people, reducing inequalities in deprived communities and improving service delivery in rural areas. The Department can also make significant contributions to other improvement priorities.

All of these developments again emphasise the importance of partnership working and the focus on local communities.

Efficiency

The economic climate for public services will be tough for the foreseeable future. The pressure on public finances at the national level will have an affect on all public services in Hampshire. This will result in an even greater expectation that services delivered by the County Council are run as efficiently as possible. There will be a new corporate efficiency programme, led at a senior level by Members and officers. The Culture, Communities and Rural Affairs Department will be expected to help deliver efficiency savings so that resources can be redirected to the corporate improvement priorities.