Dublin Inner City Partnership.
"On the future role of the DICP"

Policy paper; Implementation plan.
Board meeting 27 November 2007.

• This Document in Word Format (60kb)

1. Introduction.

The DICP circulated a discussion document in January 2007 for consultation purposes. This policy paper included an outline of the current activities undertaken by the Partnership arising from the implementation of the six year Strategic Action Plan, for 2001-2006, "Achieving Equality; Overcoming Exclusion". The paper identified emerging needs in the inner city and identified the issues to be addressed in responding to these needs in the context of the Partnership remit of tackling poverty and social exclusion. The national context and policy environment was examined with a view to including elements that could help shape the new strategy for the DICP. The policy paper set out new strategic objectives for the Partnership and proposed two principal roles for the DICP over the next ten years to 2016, as follows;

1. That the DICP should act as the lead organisation in relation to strategic planning, coordination, deployment of resources and monitoring of outcomes in relation to tackling acute poverty and social and economic exclusion in the inner city, and
2. That the DICP should focus primarily on ensuring that relevant quality service provision is targeted at, and directly benefits, the families and individuals caught in the relentless cycle of persistent and acute poverty and low income in the inner city communities.

2. Consultation.

This document was circulated widely among the community, statutory and social partner organisations associated with the Partnership and those relevant to the brief. Meetings were held with the local organisations involved in the direct implementation of the Partnership strategic plan. A policy seminar was convened in Croke Park on the 16th April 2007 for over eighty representatives of the community organisations associated with the Partnership. A meeting was held on 5th September 2007 for representatives of the statutory agencies relevant to the policy. This was attended by seventeen senior representatives of eleven agencies including, Dept of Education, HSE, Dublin City Council, the Gardai, CDVEC, Youthreach, Homeless Agency, FÁS, Secondary Schools Network, Probation & Welfare and the Digital Hub. A copy of the policy paper was forwarded to the local public representatives. The document was also placed on the DICP website and circulated to other agencies for information purposes, including Department of Community, Rural & Gaeltacht Affairs, POBAL and Department of An Taoiseach.

3. Response to the new strategic objectives and proposed role.

In general there has been a very positive response to the analysis presented in the policy paper and to the idea of the DICP focusing on those residents and communities in the inner city experiencing the most acute poverty and exclusion. The specific new roles proposed for the DICP were endorsed by the consultation meetings held. However, it was generally acknowledged that these would present a challenge to many of the organisations involved with the DICP and would require a more detailed presentation in relation to how to successfully implement this role in the future through the Partnership and local development structures.

A broad range of issues and obstacles were identified that would require to be addressed. These included, from the community sector perspective, the implications for the existing organisations and workers funded by the DICP; the capacity of existing community services to adapt to new needs; the difficulty in coordinating community based social inclusion activity; the role of the Community Networks; the additional demands placed on under-resourced local services; the best means to identify those residents experiencing acute poverty; the need for a more specific definition of how to target public services more effectively using an advocacy and rights based approach and the requirement on the DICP to more clearly spell out the means, and the changes needed, to implement the new policy at a community level.

The statutory sector representatives raised other issues that require to be addressed. The risk of shifting resources already committed over the years to local communities in order to target those most in need could result in a reduction in some areas; the implications for existing service level agreements needs to be assessed as the DICP approach would change the basis for current service provision in many agencies; the difficulty of achieving effective coordination and integration of statutory agencies in the inner city has not been resolved despite many previous attempts; while most of the statutory agencies recognise the persistence of disadvantage, particularly in local authority complexes, despite the significant resources committed there is much confusion and a difficulty in adding value to each others efforts and in targeting effectively. While all agencies present agreed that the DICP should adopt the new role it was considered necessary to convince the larger statutory agencies to cooperate, especially those who have a stated social inclusion remit.

The observations and views expressed by both the community and statutory sector representatives through the consultation process helped to clarify the potential for the implementation of this new policy and highlighted some of the main obstacles and opportunities in progressing this approach. However, the process also presented some serious challenges and concerns that will need to be addressed by the DICP at an early stage if we are to receive the local support that is essential for successful implementation. The purpose of this implementation plan is to be aware of the obstacles that confront us but also to set out the actions necessary to deal with these concerns.

4. Replying to the challenges and concerns.

In adopting this new strategy and role the DICP is not seeking to impose changes on local community or statutory service providers nor is the Partnership seeking to undermine or diminish current provision. The entitlements and benefits that local residents enjoy have been secured over years of community struggle to improve conditions and to reduce poverty. The workers who are now employed, particularly in the wide range of community organisations and in the locally delivered statutory provision, are generally acknowledged as delivering much needed and quality local services and activities to the local population, many of whom experience socio-economic disadvantage. However, the DICP policy paper set out an analysis that established that there are new and more acute needs now presenting in the inner city that are not being met effectively or consistently. In these circumstances the DICP is asserting that it is essential that new approaches are adopted and public services are adapted to tailor the response to these needs. This can not be easily achieved merely by minor adjustments in the mechanism of service provision. It is clear that fundamental change is required if we are to address the current problems. In this context, the Partnership intends to ensure that the resources controlled or influenced by the DICP are deployed to this objective.

Achieving this new approach will require discussion and negotiation with the different organisations involved in delivering on the Partnerships action plan. The strategic approach adopted by the DICP since it was established in 1991 has been to operate through and invest in the local community and statutory infrastructure rather than provide services and activities directly. This has proved highly successful to date in the context of delivering on the previous Strategic plans of the Partnership and the DICP Board has recently confirmed that it intends to continue to function in this way. While the new role will require a closer working relationship than heretofore with the staff employed to deliver actions through local projects and a higher level of interaction and alignment between the DICP activities and the employing organizations. It is not intended to affect the autonomy of the community structures, but undoubtedly the new Partnership role will influence and effect the responsibilities and activity of key staff funded by the DICP. This change will be negotiated with the local organisations in the context of the annual review undertaken in the first quarter of 2008 and the approval of continued investment by the Partnership Board in March 2008. A key element of implementing this change will be the provision of funding to the DICP from the National Development Plan for the next six year period.

A similar approach will be adopted in seeking to progress the DICP strategic role with the other local and community development organisations active in the inner city and the relevant statutory agencies. In particular, it will require agreement from the current actors that cooperation will be forthcoming as we seek to ensure that the deployment of resources and monitoring of outcomes in relation to tackling poverty is undertaken jointly and in a transparent manner. The existing local Development Coordinating group, convened by the DICP, will provide the mechanism for cooperation from the community sector and a new mechanism will be identified and agreed for the statutory sector by working through the current state representation on Partnership bodies such as DICP, the two Drugs Task Forces and other relevant structures. The DICP will continue to perform the lead role in this regard, but it will require a more formal and consistent commitment to participate from the relevant partners in the longer term in the context of the new DICP strategy.

5. Defining the new Partnership strategic objective and principal roles.

In response to the current situation in the inner city, as outlined in the Policy Paper, the DICP Board decided that the Partnership should provide clear leadership and strategic direction. This is important for two reasons, first because, in the view of the DICP Board, the diverse range of initiatives and organizations operating in the inner city with a responsibility to tackle poverty and disadvantage are not working to the optimum potential given the amount of increased resources and interventions now present, and second because, it is the belief of the Partnership that, as a result of the social and economic improvements achieved over the past decade, the potential now exists for the first time ever to significantly reduce the numbers of people experiencing acute and persistent poverty and to fundamentally alter or remove the underlying causes of the cycle of poverty in the inner city.

In these circumstances the Partnership has proposed two principal roles for the DICP over the next ten years to 2016 that in effect have now been endorsed by the key local community and statutory interests participating in the Partnership. These are;

1. That the DICP should act as the lead organization in relation to strategic planning, coordination, deployment of resources and monitoring of outcomes in relation to tackling acute poverty and social and economic exclusion in the inner city, and
2. That the DICP should focus primarily on ensuring that relevant quality service provision is targeted at, and directly benefits, the families and individuals, caught in the relentless cycle of persistent and acute poverty and low income in the inner city communities.

The overriding objective in undertaking this new role is to provide additional supports and interventions to those most in need, by working through the community and statutory agencies that are working on the "front line" in response to acute poverty and disadvantage. The DICP involvement will seek to bring coherence and more effective interagency cooperation to the delivery of essential services to those most in need and will encourage new types of provision where necessary to meet identified shortcomings in existing services and activities.

In relation to the first role stated above it is envisaged that this will involve collectively identifying the key services and resources that are intended for, or available to be delivered to, the individuals and families most in need. This will require an analysis by both the statutory and community providers of where their existing resources are deployed and if the targeting to those most in need is effective with the current delivery mechanisms. In order to achieve this, discussion will be necessary to determine agreed definitions in relation to those "hardest to reach" and, if possible, to begin to identify if and where systemic failures are occurring. Recent research undertaken by the DICP and other key organisations will assist this process and anecdotal and direct experiences of front line staff will be sought to inform this. The intention is to realign the focus of the Partnership to work only with those organizations or agency departments who have a specific role in relation to social inclusion. Among the outcomes will be an agreed Social Inclusion Plan for the inner city which will be produced by the DICP drawing from the individual agency plans and aimed at providing a strategic direction and framework for tackling acute poverty in the inner c city area and securing additional investment from the National Development Plan for this purpose. The local strategy will also identify measurable objectives for collective effort over the ten year period.

The second role outlined above will operate in the context of this strategic plan. Achieving this way of working will present a serious challenge to the DICP and the community or statutory workers involved at a local level. This requires a more focused remit in terms of community development activity and also requires workers in statutory agencies to accept a wider responsibility in addressing poverty rather than solely concentrating on the statutory remit of their agency. With regard to many of the front line staff this will involve an advocacy role on behalf of residents and their families with their own and other agencies. This could result in conflictual situations that will require to be managed and supported. It might also necessitate a priority being given to those most in need, as against the wider community needs. What is envisaged is that local community workers and other professionals will help identify, through local contact and knowledge, individuals and families that require support and will act as advocates with the relevant agencies for an appropriate response. In order to meet this demand it will be essential that the local service structures are operating in a way that is capable of delivering a response.

In summary, in implementing the new DICP roles, the Partnership will work at a number of levels. On a general level, priority will be given to producing the agreed Social Inclusion Plan that will not only require external investment from the NDP but will put in place the necessary mechanisms and protocols capable of responding, from existing resources, to new needs emerging from people experiencing poverty. In a more specific way, clear direction will be given to enable local actors to focus on identifying and responding to the most acute needs. Both approaches will require changes in current working practices and will challenge existing priorities. In addition, training in adopting a rights based approach will be necessary.

6. Contributing to the task of implementation.

It will not be possible for the DICP on its own to achieve this change. At its most effective the Partnership can be defined as including the Board represented by its constituent members, DICP staff, the organizations and workers funded by the Partnership and the local and community development organizations associated with and coordinated through the Partnership. However, even if the Partnership provides effective leadership and efficient organization, this will not resolve the issues and social problems identified in the Policy paper. This task will require a more comprehensive approach and formal commitment, primarily from the service providers with the statutory remit, but also from the wide range of community based organizations and local development structures operating in the inner city. In present circumstances, maintaining a specific priority and mandate for tackling poverty presents significant difficulties.

In this regard the consultation process helped to identify a wide range of issues that require to be addressed. Some are listed above, but the only effective way of removing these obstacles is through the direct action of the agencies themselves. The demands placed on both community and statutory representatives by their participation on the present local development structures needs to be reduced or replaced. On the other hand, the difficulties for many local community workers in prioritising tasks and activities that engage those in poverty, and most difficult to reach, frustrates the potential to develop effective responses collectively. If we are to facilitate the active participation of key workers and organizations in contributing to the implementation of the DICP role these problems must be addressed and resolved in a sensitive and participative manner.

7. Proposals for Action.

The introduction of these new roles for the DICP, and the continued progression of the policy itself which is a dynamic rather than static process, is already underway. The DICP will have completed delivery of the current strategic plan by the end of 2007 and the preparation for securing future funding is in hand. A range of specific actions are enumerated below to assist the Partnership through the next phase of implementation.

• An external review of the outcomes from the Partnership Strategic Plan and the implications for future action has been commissioned for completion by February 2008.
• The Haase Report, Divided city. The changing face of Dublin's inner city will be completed in the first quarter of 2008 when the relevant census data is available and incorporated.
• The GAMMA demographic analysis for the inner city area has been commissioned by POBAL and is expected in the first quarter of 2008.
• The DICP Staff review in the first quarter of 2008 will provide the opportunity to examine and discuss the specific implications for areas of work and responsibility arising from the implementation of the new policy.
• The DICP will convene the Inner city Local and Community Development Coordination Group early in the New Year to discuss implementation of the DICP policy.
• The National cohesion process for area partnership companies will allow the DICP Board to review governance issues and to renew Board membership consistent with implementing the agreed policy.
• It is expected that the DICP will be invited to submit a strategic action plan to Pobal for a three year funding allocation during 2008. Discussions are underway in relation to the LDSIP measures to be supported and it has been confirmed by the Department of CRAGA that these will be consistent with the NDP measures noted in the DICP Policy paper.
• The Partnership September Board meeting decided to extend all contracts with the local development infrastructure funded by the DICP. This will allow the DICP to present proposals to the organizations in relation to the implementation of the new policy during the investment review process in the first quarter of 2008. The outcome will form the basis for future investment.
• It was agreed with the statutory representatives involved in the consultation process that a further meeting would be held to discuss implementation and the implications for their agencies. This will take place in the first quarter of 2008. Following this it is intended to organise a joint conference with frontline staff from the community and statutory sectors to identify how best to cooperate. This should help to identify and initiate a suitable mechanism for engagement with the Statutory sector for implementation purposes.
• Early in the New Year the process will be initiated for identifying and agreeing key indicators that can be applied across the participating organizations. This will be used to measure, both collectively and individually, the impact of implementation and the outcomes achieved over the period of the strategy. This will be achieved by producing the Social Inclusion Plan for the inner city, drawn from the respective local and community development plans, which will justify investment from the NDP and ensure the best use of existing resources in effectively tackling poverty.

7. Conclusion and Board decision.

The successful implementation of this new DICP policy and role presents a significant challenge to the Board and staff. In general agreement has been reached that the analysis undertaken is correct and that the emerging needs are as identified. However, despite the fact that the thrust of the policy has been welcomed and the proposed new role for the DICP has been endorsed it will still prove a daunting task to convince all of the key local community and statutory interests to work in collaboration with the Partnership on this vision and strategy. This is because the range of responsibilities of the key agencies is wider than the focus on tackling poverty in the inner city and because, in many cases, the provision and allocation of public funding aimed at addressing poverty in the inner city is segmented, diffuse and lacks strategic coherence. The scale and persistence of poverty in the area fully justifies the commitment and efforts needed to confront it, and, in the context of the wealth and value of resources available to the State, there will never be a better time to undertake this challenge.

The Partnership Board meeting of 27th November 2007 approved this DICP Policy Implementation Plan with the assurance that the organizations and agencies represented on the Board will commit to its successful delivery.

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