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                     Everyone Different Everyone Matters
                                                                     Narrowing the Gap
                                                                    Programme Proposals
                                                                      November 2008
1. Introduction

   1.1     This paper describes a programme of work – and its constituent projects – which has as
           its objective the narrowing of the gap between the best and worst quality of life
           experienced by residents of our borough.

   1.2     The programme is structured in two dimensions:

              3 projects which build capacity and embed a focus on ‘narrowing the gap’ within the
               everyday activities of our organisations
              5 main delivery projects which address key gaps – worklessness and income
               deprivation; health inequalities; affordable housing, cohesive communities and
               disadvantaged individuals.
                           Work and income – Economy & Enterprise

                                                                         Poor health – Healthier Communities

                                                                                                                                                                                  Young People
                                                                                                                                                                                  Disadvantaged individuals – Older People, Children&
                                                                                                               Housing - Environment

                                                                                                                                       Strong Community Life – Safer & Stronger
   Evidence Base

  Mainstreaming NTG
  into delivery planning
  and implementation
  “NTG proofing”

  Equality Frameworks

   1.3     The LSP delivery group is asked to:

              Endorse the programme and its constituent projects
              Agree governance and programme management responsibilities
              Approve an initial pump priming allocation of 30k to accelerate work on NTG –
               potentially topsliced from uncommitted ABG for 2008/09 / partner contributions.

                                                                                                                                                                                                                                          Page 1
2. Our Commitment to ‘Narrowing the Gap’

   2.1   We, the partners in Calderdale Forward, have made a clear and public commitment to
         narrow the differentials that exist in the life chances, experiences and outcomes for
         individuals and communities across our borough.

   2.2   We want everyone, wherever they live and whatever community they come from, to have
         access to a good education, a decent home in a safe and clean neighbourhood, the
         opportunity to earn sufficient income throughout their working life and the expectation of a
         long healthy life. This is at the core of what ‘Everyone Different Everyone Matters’ means
         to us.

   2.3   The benefits from narrowing the gap will be wider than the specific individuals and
         communities who are the direct focus of the projects proposed. To give just a few
         examples: if we can intervene early and reduce the disproportionately high costs of care
         for people with chronic disabling conditions such as coronary heart disease, respiratory
         diseases and cancers we can put more investment into universal primary health services.
         We know that if young people leave school with vocational/academic qualifications
         confidently equipped for adult life that their chances of becoming a cost to the taxpayer
         because they are unemployed and on benefit or are caught up in the criminal justice
         system, are hugely reduced.

   2.4   Six principles underpin our commitment to narrowing the gap:

            The importance of individual and community self reliance and independence
            One size does not fit all – people and communities are different – personalisation and
             choice for customers/users/citizens
            Zero tolerance of attitudes and behaviours that exclude devalue or actively prevent
             individuals and communities from seizing opportunities taking part and making their
            Tailored services and targeted service delivery built around a deep understanding of
             communities’ needs. Good evidence base of what works.
            Sustained medium and long term actions to narrow the gaps – some gaps such as life
             expectancy will take a generation to narrow.
            Partnerships across organisations and with communities to Narrow the Gap.

   The importance of sustained long term action

   2.5   Our first Local Area Agreement (LAA) with Government made our intentions clear, with
         targeted actions to narrow the gap between the quality of life within different areas of our
         Borough. Our LAA 2008-20012 maintains and extends this commitment in our
         prioritisation and inclusion of specific targets from the basket of LAA indicators which will
         support the narrowing the gap agendas for Calderdale.

         To ensure delivery it is proposed that we enhance our competence and capacity in the
         following three areas: production and use of the evidence base NTG; embedding the
         focus on ‘narrowing the gap’ in planning performance management and organisation

                                                                                               Page 2
             development, and quality assuring our work through achievement of appropriate equality

3. The evidence base for ‘Narrowing the Gap’

      3.1    At a whole borough level the 2007 Indices of Deprivation suggest that multiple deprivation
             in Calderdale is lower than in many Metropolitan Districts and that we are less deprived as
             a Borough compared to national levels of deprivation than in 2004.

      3.2    However the most deprived areas within Calderdale on this index have improved least
             and therefore the gap between the most prosperous and deprived communities in the
             Borough has actually widened since 2004. (Appendix 1 IMD map). There is moderate and
             severe deprivation in west and north Halifax with pockets of moderate deprivation in
             Todmorden, Sowerby Bridge and Elland. Within these areas the dimensions of quality of
             life which have not improved or improved at a much slower rate than across the Borough
             are: income and employment levels, health, access to housing and environmental quality.

      3.3    20% of children in Calderdale still live within households experiencing income deprivation.
             The proportion of older people in income deprived households compared to the total
             population in such households has doubled since 2004, from 1.6% to 3.6%. We also know
             that male life expectancy is significantly below the national average. (Appendix 2
             commentary on IMD).

      3.4    These facts give a broad and initial picture of where gaps exist for specific geographic
             communities and communities of interest – or population sub groups – and endorses our
             overall narrowing the gap delivery priorities.

      3.5    Added to which we have a range of contextual data including ward profiles socio-
             demographic data, employment and skills data, and agencies produce and use a mass of
             data to target and focus their work and provision of service to individuals and

      3.6    The JSNA represents a comprehensive analysis of health and social care needs across
             Calderdale and provides evidence of significant gaps and impact on quality of life for
             some individual and communities.

             Neighbourhood Management schemes in the most deprived communities of Calderdale
             has shown the benefits of intensive engagement with local communities and reconfigured
             services based on the resulting deeper understanding of local needs.

             To get underneath specific LAA targets earlier this year the LSP agreed to gain
             disaggregated data for all targets where there was a potential to narrow the gap. This
             work is being progressed but in many areas this data has not been previously collected in

             We have recently commissioned work to profile quality of life within our rural communities
             and begun a project to profile the experience of white working class boys in our Borough
             who are disproportionately represented in NEETS figures, ASBO orders, Drug and
             Alcohol treatment etc. There has been work undertaken on the health status of our Irish
             community. We know that our communities are changing and that we know relatively little
                                                                                                Page 3
          about our accession state (A8) communities. We are also aware that the economic
          climate is worsening and rapidly and that we need to be able to track its impact in our
          communities, as this may in itself open gaps which did not exist before.

   3.7    But we need to drill much further into the evidence of quality of life for individuals and
          communities if the narrowing the gap programme is to have maximum impact.

   3.8    We lack a consolidated evidence base which profiles quality of life across geographic
          communities and for communities of interest at appropriate spatial levels and for relatively
          small communities. The recent joint strategic needs assessment has provided impetus for
          development of such evidence.

          This now needs further resource and investment from across the partnership.

   3.9    A key project within the narrowing the gap programme to build capacity is development
          and maintenance of a dynamic evidence base which is made available to agencies and
          communities in a range of formats which support service planning and development of

   3.10   We have begun to assess our ability to profile progress on our 31 LAA targets by impact
          on both community of interest and geographic community. (appendix 3 table re
          disaggregation) But there is considerable work required. Additionally we need to track
          against relevant national indicators to have a comprehensive picture of the differentials in
          life experiences within the Borough.

   3.11   Finally we also need to understand more about ‘what works’ – ie to look systematically
          and collectively at evidence about the impact of interventions – both our own and external
          to Calderdale.

   3.12   It is therefore proposed that a key project within our Narrowing the Gap programme is
          focussed on evidence and that this is progressed by a ‘research and intelligence’ group
          drawn from representatives of organisations within Calderdale Forward.

3. Policy Planning and Performance Management of Narrowing the Gap

   4.1    ‘Narrowing the Gap’ is a core priority for Calderdale Forward and therefore needs to be
          mainstreamed as one of our ‘golden threads’ into all of our planning and performance
          management activity ie. LAA delivery plans, Corporate Organisational Priorities and
          Plans, Business units/service plans and Individual delivery plans. Work has begun as
          indicated to look at our ability to collect disaggregated data for delivery of LAA priorities.
          But a review is needed of the approach we are taking to development and performance
          management of LAA delivery plans to ensure that the narrowing the gap work of each sub
          partnership is identified and its impact tracked systematically. This will in turn feed into the
          commissioning processes for use of Area Based Grant.

                                                                                                   Page 4

                                   Corporate Plans
                            Departmental Plans

                         Individual Workplans NTG

   4.2    A wider piece of work is for each organisation within Calderdale Forward to embed
          ‘narrowing the gap’ appropriately into its own internal arrangements for planning and
          performance management. It is recognised that organisations are of different scales and
          approaches to planning and performance management therefore one size will not fit all.
          However as part of preparations for LAA it would be helpful to assess the extent to which
          partners’ organisations can evidence the understanding of community needs and
          aspirations and how this drives service planning and delivery.

   4.3    The work to “Narrow the Gap proof” / mainstream Narrow the Gap into the daily activity of
          the LSP and its partner organisations can be integrated into wider organisational
          development of policy and performance management.

4. Equality Frameworks

   5.1    A range of Equality Frameworks – some with assessment and accreditation – exist across
          the public private and voluntary sectors. They provide objective external standards which
          describe the key competences required of organisations who are committed to equality
          and discharging statutory responsibilities enshrined in the various pieces of equality
          legislation. At present there is no standing group of representatives from across
          Calderdale Forward’s constituent organisations which has lead responsibility for work on
          Equalities. It is proposed that as part of this programme the Equalities project sees the
          establishment of a network of such people who are charged with developing a more co-
          ordinated approach to the quality assurance of dimension of the programme.

5. Delivery Priorities

   6.1    Our LAA priorities were selected on the basis of our commitment to narrowing the gap and
          understanding of where there are currently gaps in life chances and outcomes for our
          residents and communities and especially groups of disadvantaged individuals e,g,

                                                                                            Page 5
         Looked After Children. These priorities remain. It is proposed that these are contained
         within 5 delivery projects of the Narrowing the Gap programme as follows:

            Work and Income – lead partnership Economy and Enterprise
            Health– lead partnership Healthier Communities
            Housing – lead partnership Environment
            Strong communities – lead partnership Safer and Stronger Communities
            Disadvantaged individuals – lead partnerships Children and Young People and Older

   6.2   These 5 projects are proposed because as a whole they capture the biggest challenges
         which the Borough faces in relation to the Narrowing The Gap agenda.

   6.3   These projects will be lead by the nominated partnership but will as much of our work
         does involve constant cross partnership working. The delivery projects will receive support
         guidance and advice from the 3 capacity building projects. The first task is for each lead
         partnership to complete its LAA delivery plan ensuring its Narrowing the Gap contribution
         is apparent that indicators targets baselines and delivery proposals are fit for purpose. It is
         proposed that a summary report is produced which reflects the narrowing the gap delivery
         commitments by January 2009 to inform and prioritise allocation of Area Based Grant for
         2009/2010. We need to establish clear statements of intent in relation to each of our 5
         delivery projects by January 2009.

6. Governance and Programme Management Responsibilities

   7.1   It is proposed that the programme is accountable to Calderdale Forward Board via the
         LSP delivery group. It is further proposed that the Senior Responsible Officers for delivery
         of the programme is Kersten England and Graham Wardman. It is proposed that Senior
         Responsible Officers for the constituent projects are assigned as follows:

            Building the Evidence Base – Sue Bamford
            Planning and Performance Management – Sue Bamford
            Equality Standards – Andrew Pitts
            Work and Income – Chris Jones
            Housing – Tom Miskell
            Health – Paul Butcher
            Disadvantaged Individuals – Jonathan Phillips
            Strong Communities – Soo Nevison

   7.2   It is proposed that Narrowing the Gap is a key criteria for allocating resource, particularly
         Area Based Grant, and commissioning activity for 2009/2010. Production of clear
         evidence and profiling of baselines against indicators for specific groups to inform the
         commissioning processes will be a first priority for the work on the NTG evidence base.
         For example decisions will be required in relation to neighbourhood management and its
         contribution to NTG in deprived communities. Given the work which is required
         immediately it is proposed that an in year pump priming allocation of 30k from across Area
         Based Grant allocations/partner organisations is identified to fund work on NTG primarily
         to fund the capacity building dimensions of the work.
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  7.3   Once approved the next stage of the programme will be to develop project initiation
        documents for each of the 8 projects which will then be summarised and reported back to
        the LSP delivery group in January 2009.

7. Conclusion

  8.1   The proposals in this paper represent a step change in the level of co-ordination support
        and direction given to NTG activity for Calderdale.

  8.2   The work will be co-ordinated within existing partnership structures. This is not about an
        additional bureaucracy. This is about mainstreaming NTG and improving delivery of core

  8.3   The sole objective of the NTG programme is to deliver our commitment to equitable life
        chances and outcomes for the people and communities within the Borough.

                                                                                           Page 7
             Appendix 1

Appendix 2

                 Page 8
                                                                                                     Appendix 2


1.     District rankings of deprivation

Table 1 National ranking on three measures of deprivation : 2004 and 2007

                                                  Measures of Deprivation


                                          Score              Extent          Concentration

                                      2004        2007    2004        2007    2004    2007

                                          86        107     83        98       65      71

   a) The rankings are of the 354 English districts where a ranking of 1 is the most deprived and 354 is the least
   b) Definitions
      Average score - the average of the combined scores of the Lower Super Output Areas in the district

        Extent - the proportion of the District's population within the most deprived 10% LSOAs in the country

        Concentration - average rank of the district's most deprived LSOAs containing 10% of the population.

1.1     The table indicates an overall improvement in the national ranking of the district, taking it outside the
        most deprived 100 district’s in the country. There has been less significant improvement on the measures
        of the most serious deprivation in the district.

2.     Small Area deprivation

2.1.   The maps on the following pages show the locations of small areas that are within the most deprived 10%,
       and 10-20%, national cohorts on the index of multiple deprivation.

2.2.   The main findings at this level are;
        although there was an average improvement of 6% in the national ranking of LSOAs in Calderdale
           between the 2004 and 2007 Indices this rate of improvement was not achieved in any of the LSOAs
           within the most deprived areas

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          there are 13 LSOAs in the 10% most deprived nationally (compared to 15 in 2004). All were within the
           worst 10% in 2004 and the ranking order is not significantly different. They are concentrated in west
           and north Halifax
          of the 29 LSOAs within the worst 20%, all but 1 were in this cohort in 2004. Within the 10-20% band
           there is a wider spread of small areas of deprivation across the district
          There are 10 LSOAs in the worst 2,000 nationally, the same as in 2004
          The population in the district living in areas amongst the most deprived 20% in the country is 42,300
           (from 43,400 in 2004), around one-fifth of the total population.

2.3.   The findings indicate that although there has been a significant improvement in the rankings of the great
       majority of LSOAs in the district this has not been secured in the most deprived localities and that the gap
       widened over the period measured.

3.     Types of deprivation

3.1.   The Indices include data on indicators of seven types (domains) of deprivation along with supplementary
       tables on children and older people living in households that are income deprived.

3.2.   The main findings as they relate to the LAA themes are:

       Economy and Enterprise

       The nos of employment-related LSOAs in the district increased form 11 to 15 between the 2004 and 2007
       Indices. The locations are similar to those in the maps of the Index of multiple deprivation but also include
       LSOAs in Elland, Town, Sowerby Bridge and Todmorden.


       The most important indicators within the Living Environment relate to housing conditions. This is the most
       prevalent of all the domains with 29 LSOAs being in the national worst 10%. By far the greatest number are
       in Park ward but 12 wards have one or more LSOAs in this category.

       Safer & Stronger Communities

       Crime related deprivation fell markedly between the 2004 and 2007 Indices, from 22 to 12 LSOAs within
       the national worst 10%. The biggest fall was in Ovenden, although it still has 5 LSOAs in this category ;
       Todmorden and Warley also have more than one LSOA in this group.

       Healthier Communities

       Severe health-related deprivation was identified in only 5 LSOAs in the 2007 Indices across 4 wards (Town,
       Park, Ovenden and Illingworth & Mixenden) compared to 8 LSOAs in 2004. The greatest reduction was in
       Park ward.

       Older People

       The proportion of older people experiencing income deprivation has significantly increased. However,
       reflecting the national increase in this phenomenon, the nos of LSOAs within the worst 10% and 10-20%

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      chorts has actually fallen. They are predominantly located in west and north Halifax but also in Brighouse,
      Elland, Sowerby Bridge and Todmorden.

Children and Young People

       The scale and distribution of education, training and skills related deprivation is unchanged since the 2004
       Indices, with 14 LSOAs being within the most deprived 10% nationally. They are found in west and north
       Halifax.The proportion of children in income deprived households has gone down slightly. There are also
       fewer local LSOAs for this category in the worst 10% and 10-20% cohorts nationally.

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                              Disaggregation of indicators in Calderdale’s LAA 2008/2011; Updated 30/9/08

Y      Disaggregation available
N      Disaggregation not available
U/K    Unknown whether disaggregation possible

       Target will NTG
       Need to establish if gap exists
       Contributes to NTG
       Target does not NTG


                                                                                                                           Area Forum)

                                                                                                                            (Ward and



                Indicator                  availability                                                                                                 Issues

NI 1 % of people who believe people
from different backgrounds get on well                    Y     Y        Y              N        Y              N              Y
together in their local area
NI 4 % of people who feel they can
                                                          Y     Y        Y              N        Y              N              Y
influence decisions in their locality
NI 7 Environment for a thriving third
                                                          U/K   N        U/K          U/K        U/K         U/K             U/K          NA as national data source (DCLG)
                                                                                                                                          Data source is a national and
NI 8 Adult participation in sport and
                                                          U/K   U/K      U/K          U/K        U/K         U/K             U/K          therefore may not be accessible for
active recreation
                                                                                                                                          Ward data can be provided at least
NI 16 Serious acquisitive crime rate                      N     N        N              N        N              N              Y
                                                                                                                                          quarterly, and possibly monthly
NI 20 Assault with injury crime rate                                                                                                      Ward data can be provided at least
                                                          N     N        N              N        N              N              Y
                                                                                                                                          quarterly, and possibly monthly
NI 30 Re-offending rate of prolific and
                                                          N     N        N              N        N              N              N
priority offenders

                                                                                                                                                                      Page 12

                                                                                                                               Area Forum)

                                                                                                                                (Ward and



                 Indicator                    availability                                                                                                  Issues

NI 35 Building resilience to violent
extremism                                                    N     N         N              N        N              N              N

NI 47 People killed or seriously injured in
                                                             N     N         N              N        N              N              N
road traffic accidents
NI 53 Prevalence of breastfeeding at - 8
                                                             Y     N         N              Y        U/K            N              Y
weeks from birth
NI 56 Obesity among primary school age
children in Year 6                                           Y     Y         N              N        Y              N              Y

NI 59 Percentage of initial assessments
                                                                                                                                              Need to check if could be gaps in
for children's social care carried out                       U/K   U/K      U/K           U/K        U/K         U/K             U/K
                                                                                                                                              assessment times
within 7 working days of referral
NI 60 Percentage of core assessments
for children's social care that were
                                                             U/K   U/K      U/K           U/K        U/K         U/K             U/K          See above
carried out within 35 working days of their
NI 69 Children who have experienced
bullying                                                                                                                                      NA as national data source
                                                             U/K   U/K      U/K           U/K        U/K         U/K             U/K

NI 111 First time entrants to the Youth                                     Not
                                                             Y     Y                        Y        Y              N              Y
Justice System aged 10 – 17                                                 sure
NI 112 Under 18 conception rate
                                                             Y     N         N              N        N              N              Y

NI 117 16 to 18 year olds who are not in
education, training or employment                            Y     Y         N              N        Y              N              Y
                                                                                                                                                                           Page 13

                                                                                                                              Area Forum)

                                                                                                                               (Ward and



                 Indicator                    availability                                                                                                  Issues

NI 120 All-age all cause mortality rate                      U/K   Y        U/K          U/K        U/K         U/K             U/K
NI 125 Achieving independence for older
people through rehabilitation/intermediate
care                                                         Y     Y        Y            TBC        Y           TBC               Y

NI 130 Social Care clients receiving Self                                                                                                    Small ‘population’ of results could
Directed Support per 100,000 population                                                                                                      have implications for robustness of
                                                             Y     Y        Y            U/K        U/K         U/K               Y
                                                                                                                                             disaggregation. Need to establish
                                                                                                                                             benefits of disaggregation.
                                                                                                                                             Results come from two data
NI 136 People supported to live                                                                                                              sources; only 1 of those would be
independently through social services                        Y     Y        Y            TBC        Y           TBC               Y          able to provide disaggregated data.
                                                                                                                                             However the ‘population’ size would
                                                                                                                                             be 1000+.
NI 138 Satisfaction of people over 65
with both home and neighbourhood                             N     Y        Y              N        Y              N              Y

NI 142 Percentage of vulnerable people                                                                                                       Difficult to disaggregate for these
who are supported to maintain                                                                                                                categories. Focus of indicator is
independent living                                           NA    NA       NA           NA         NA           NA              NA          NTG for vulnerable groups. Service
                                                                                                                                             devt is shaped by constant review
                                                                                                                                             of NTG issues,
NI 146 Adults with learning disabilities in
                                                                                                                                             Need to establish merits of further
employment                                                   Y     TBC      Y              N        TBC            N           TBC

NI 150 Adults in contact with secondary
mental health services in employment                         Y     U/K      U/K          U/K        U/K         U/K             U/K

                                                                                                                                                                           Page 14

                                                                                                                               Area Forum)

                                                                                                                                (Ward and



                 Indicator                     availability                                                                                                 Issues

NI 153 Working age people claiming out
of work benefits in the worst performing                      Y     Y        N              N        N              N              Y
NI 155 Number of affordable homes                                                                                                             Analysis to show spread of
                                                              N     N        N              N        N              N              Y
delivered (gross)                                                                                                                             affordable housing across Borough
NI 167 Congestion - average journey
time per mile during the morning peak                         N     N        N              N        N              N              N          Measures 3 specific routes

NI 171 New business registration rate                                                                                                         data source is National (DBERR),
                                                              N     N        N              N        N              N              N
                                                                                                                                              so info may not be available
NI 186 Per capita CO2 emissions in the
LA area                                                       N     N        N              N        N              N              N          Data source not by geography

NI 195 Improved street and
environmental cleanliness (levels of litter)                                                                                                  Annual ward data available from
                                                              N     N        N              N        N              N              Y
                                                                                                                                              2003-4 to date.

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