DEVOLVED DECISION-MAKING: TOPPS COMMISSIONING Introduction

This chapter seeks to examine the commissioning of services over the life of the Rochdale POPP pilot, based upon data provided by the TOPP Development Worker. It also explores the devolved commissioning process and activity that is at the heart of the Rochdale POPP supplementing this data with observational research data gained from attending TOPPs monthly meetings, as well as focus groups with TOPPs members in each Township. From the outset Rochdale POPP sought to enable older people to exercise greater power and control over their lives, in order to sustain independence and well-being in later years. The model developed conveys a powerful commitment to the principle of community empowerment, which is centred upon two key activities:

Developing partnerships with older people at a Township level

The POPP programme set up TOPPs in each of the four Townships that comprise Rochdale Borough (Heywood, Rochdale, Middleton, and Pennines). Each of the TOPPs represented a partnership between older people, Rochdale Borough and other local organisations for older people. They were supported by Rochdale CVS, who were funded by Rochdale POPP to employ a TOPP Development Worker. The role of the TOPP Development Worker was to bring together older people’s associations to develop the membership of a TOPP within each Township, so that they would be representative of older people and able to confidently commission services.

Further support work included supplying dedicated capacity building and training to the TOPPs so that they became inclusive, had appropriate terms of reference and were in a position to identify their training needs. In addition, the TOPPs had a wider objective in linking with Township structures, so that older people could have a voice within the local democratic process.

Devolving commissioning and funding to the Townships

The TOPPs were given responsibility for a development budget for commissioning local activities, and promoting initiatives led or supported by older people. This ethos involved the creation of an entirely new financial partnership with older people, in that TOPPs were given greater control over resources to develop local activities in line with local needs.

The strategy involved an indicative budget that focused upon preventative services and local activities (such as healthy living, leisure and associated transport to support access to services and activities). The Rochdale POPP programme involved approximately 40% of the total budget (allocated to each TOPP based upon the demographic distribution of older people aged 65 and over in each Township) being devolved in this way. Furthermore, the proposed strategy involved TOPPs receiving adequate training, so that they could decide upon their local priorities (within the agreed project criteria) in direct response to the choices and needs identified by older people through POPP outreach workers.

The criteria for TOPPs commissioning was set in accordance with the objectives of Rochdale POPP. Thus proposals for funding were required to:

 Meet the health and well-being objectives of Rochdale POPP  Fill a gap identified by older people in the Township

 Address how the proposed activity become sustainable, for example, what element of the spend will be used on skills and training?

Six outreach workers played a key role in engaging with older people (including those who are socially isolated and excluded) across the four Townships based upon referrals from various agencies, as well as self- referrals. In addition to navigating, signposting and referring on to mainstream services, outreach workers played a crucial role in providing information about needs directly into the TOPPs in order to help inform decision-making.

Commissioning: Heywood TOPP

Heywood TOPP had an indicative budget of £72,000 over the course of the POPP pilot, and directly commissioned services to the value of £54,045. Table 5.1 provides a breakdown of services and activities commissioned by Heywood TOPP.

Commissioning by Heywood TOPP: A discussion

It can be seen that the Heywood TOPP spent approximately a third of their allocated budget on transport-related activities, which further underlines the immense importance of the transport element of the POPP project in enabling older people to access services and facilities. This is a pattern of funding which is replicated in other TOPPs commissioning decisions. The remaining funds were spent on a combination of IT, Allotments, Dancing, Tai Chi, Play Equipment and Arts and Craft activities.

Table 5.1:Heywood commissioning activity

Service Supplier Date of

Funding Approval Funding (£) Flexible Transport GMPTE January 2008 1,000

Allotments Wrigley Brook Allotments March 2008 5,000

IT Lessons Rochdale Life Long Learning March 2008 2,880

Volunteer Driver

Scheme New Heart Heywood CommunityTransport March 2008 4,550

Rochdale Borough Shopping Link

GMPTE March 2008 5,000

Arts and Crafts 2nd_{Generation Club June 2008 1,450}

Rochdale Borough Shopping Link

GMPTE June 2008 2,500

Armchair

Exercise Crimble Croft Community Centre August 2008 3,025 Dancing Spiral Dance August 2008 4,698

Allotments Wrigley Brook Allotments September 2008 5,000

Volunteer Driver Scheme (Co-ordinator) GMPTE September 2008 3,600 Flexible Transport Top- Up GMPTE September 2008 1,250 Queens Park

Play Equipment Queens Park November 2008 8,450

Tai Chi NHS November 2008 5,642

TOTAL SPENT £54,045

BUDGET REMAINING £17,955

The Allotments activity (provided by Wrigley Brook Allotments, a voluntary community organisation) has been particularly innovative, in that efforts have been made to support disabled people to access the facilities through the provision of raised flower beds, so that that all older people can participate in

planting, seeding, weeding and other gardening activities. It has also meant that volunteers have been able to support older people with tending to the allotment where necessary, and has enabled tools to be made available. Considerable numbers of older people in Heywood who used to have gardens and have since moved into sheltered accommodation expressed the desire to take part in gardening. The allotments funding has succeeded in re-engaging many older people in Heywood with gardening, as well as developing social ties within their communities. The allotment funding has also enabled locally farmed produce to be sold within the allotment shop at slightly lower prices than those charged within local supermarkets.

Armchair Exercise provided at Crimble Croft Community Centre are an example of TOPPs funding being used to give access to services in ways that are convenient to service users. Through attending Crimble Croft Community Centre for Armchair Exercise, participants are able to have lunch at the Luncheon Club provided there, as well as take part in other activities, such as Bingo, Arts and Crafts or watch old films. Rather than merely take part in Armchair Exercise and then return home, there is an opportunity for POPP members in Heywood to develop their social circle and take part in various additional activities. Taking part in Armchair Exercise has involved participants being charged a sessional fee of approximately £1.50, but this has allowed Crimble Croft Community Centre to provide more sessions, and so enhanced the sustainability of the service, which may help to secure additional funding beyond the life of the POPP project.

Queens Park Play Equipment is a highly innovative development, and is the first of its kind in the whole Borough. It involves ten pieces of exercise equipment being set up within Queens Park for the use of the whole community, and there is anecdotal evidence that considerable numbers of older people have been using the equipment to enhance their health and well- being. The equipment is fully accessible to disabled people, and provides a

combination of cardiovascular exercise, as well as stretching/toning equipment. The commissioning of this play equipment demonstrates the Heywood TOPP’s willingness to work in partnership with a variety of agencies (i.e. New Heart for Heywood, Rochdale MBC and Friends of Queens Park) in order to achieve benefits for older people in the community.

Spiral Dance also highlights the flexible approach to service provision, in that dance classes are provided at Heywood Civic Centre, which is the preferred location of older people. Participation involves a charge of approximately £1.50, which has helped to sustain the service, and has also enabled the service to be delivered within additional locations in Heywood.

The provision of IT lessons has involved a rolling programme of computer classes, where the emphasis has been on communication through internet and email. Four 12-week courses of lessons are offered over the course of a year, and classes have taken place in the Heywood Township Offices. The classes have been extremely valued in enabling POPP members to learn how to communicate via email with relatives and friends abroad, notably in Australia and New Zealand, and hence the service has helped to address social isolation.

Commissioning: Middleton TOPP

Middleton TOPP had an indicative budget of £96,000 over the course of the POPP pilot, and directly commissioned services to the value of £71,414. Table 5.2 provides a breakdown of services and activities commissioned by Middleton TOPP.

Commissioning by Middleton TOPP: A discussion

Middleton TOPP have, like Heywood TOPP, spent roughly a third of their allocated budget on transport-related activities, which further underlines the immense importance of the transport element of the POPP project in enabling

older people to access services and facilities. The remaining funds have been spent on a combination of IT, Podiatry, Carers’ Support, Armchair Exercise and Arts and Craft activities.

The funding of MJBTRA (Tenants and Residents Association), a community voluntary organisation, to deliver a combination of holistic therapy and gentle exercise, illustrates a person-centred approach to service delivery. The sessions are offered within a sheltered accommodation, as the residents preferred to take part in these activities in their place of residence rather than elsewhere. This indicates that the TOPPs commissioning has sought to provide services based upon the expressed wishes of older people. However, it has been noted that participants attending come from different parts of Middleton, and not solely from the sheltered accommodation in which the activities take place. This approach fits well with equal opportunities practice in that voluntary and community organisations (such as MJBTRA) would be unwilling to provide services that were not accessible to all. The commissioning of this service has been particularly successful in that when the commissioning ceased, the service continued to receive funding from the Healthy Living Programme. This person-centred approach can also be seen in the funding of Arts and Crafts activities at Hollin Estate, which is one of the most deprived parts of Middleton and an area where there had been no activities for older people. Provision of these activities at Hollin Estate has meant that local residents (who had requested local activities) can more easily access them, which has helped to increase participation.