Warm Homes Evaluation Summary - Bradford Metropolitan District ...

BRADFORD AND DISTRICT
WARM HOMES HEALTHY
PEOPLE PROGRAMME
EVALUATION SUMMARY
A ground-breaking project
to help people to be warmer.
What happened and did it
make a difference?

BRADFORD AND DISTRICT WARM HOMES HEALTHY PEOPLE PROGRAMME EVALUATION SUMMARY
About the scheme
Between January and April 2012 a ground-breaking initiative took place in the Bradford
District. Funded by £204,500 from the Department of Health through its ‘Warm Homes
Healthy People Fund’, it aimed to help vulnerable people keep warm or to be warmer by:
Giving people cold weather information and advice.
Providing practical support.
Getting neighbours to help each other.
Activities undertaken in this Warm Homes programme included:
Written information and face-to-face advice on how to keep warm.
Practical help like food parcels, warm clothing, blankets, or heaters.
Hot meals for vulnerable people and children who would not get them otherwise.
Financial help to people who would have not been able to turn on their heating
otherwise.
Provision of household thermometers.
Snow and ice gritting equipment to volunteer groups to help communities deal with
snow problems.
Setting up local street schemes so people help each other when it is cold.
A Summit looking at key messages and next steps.
The activities were delivered by a number of organisations including voluntary and
community organisations, and coordinated by Bradford Council’s Department of
Community and Adult Services. All the partners came together in a Warm Homes
Partnership Board.
Evaluating the scheme
“What we did was
only the tip of the
iceberg. I’m sure
we made a big
difference to those
we reached but
only the tip of the
iceberg.”
Evaluators were asked to undertake a review to give an independent assessment of how
the programme worked on the ground. This was done by talking to the organisations
that delivered the activities, as well as beneficiaries and proxy beneficiaries. It is not a
comparative evaluation.
Evaluation Conclusion
The main conclusion of this evaluation is that, despite very short timescales, this
has been an extremely successful initiative; providing real, immediate and direct
help to some of the most needy and vulnerable people. No duplication of activity was
identified and potential exists for a larger volume of activity.
The commitment of the organisations and their staff involved has been exceptional.
There is unanimous agreement that there is a need for winter warmth activity in
Bradford to continue.
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BRADFORD AND DISTRICT WARM HOMES HEALTHY PEOPLE PROGRAMME EVALUATION SUMMARY
What activity was undertaken and who benefited?
It is estimated that nearly 50,000 people benefited from this short project through a
variety of services.
Service/activity
Help and advice
A Winter Warmth Guide
offering advice to older people
on practical ways to keep warm
in their homes and including
information on health and
safety, fuel and energy
saving tips.
6 Heat or Eat Roadshows gave
advice and support around
eating well, keeping homes
warm and applications to the
national Warm Front scheme.
Free resources such as food
bags, light bulbs, duvets and
vouchers were given away.
How many people
benefited
40,000 copies of the winter
warmth guide were printed
and c. 34,000 have been
circulated. The remainder
will be distributed next
winter.
362 people were given
advice and support through
the six road-show events.
Who delivered
this
Age UK Bradford &
District
Carers Resource
Practical help and support to help people be warmer
Small grants to individuals and
families to help with:
Clothing, food and
household items
Fuel bills and arrears
Emergency fuel top-ups
Court fees for debts
Household thermometers.
Clothing, footwear, bedding,
other household items such as
draft excluders, heating items,
cooking facilities etc and food
to help people to be warmer.
At least 207 grants:
82% of applicants were
on a low income
13% were in housing need
9% were older people
49% were disabled people
26% were families
12,000 general household
thermometers were printed
and distributed, with a
further 4,800 available for
distribution next year.
c.849 individuals or families
received support.
The scheme was
run by the Advice
Network & Training
Partnership (ANTP).
Grants were applied
for by member
advice agencies.
Age UK Bradford &
District
ANTP,
HALE (Health Action
Local Engagement
Healthy Living
Project),
HOTS (Health on the
Streets),
In churches through
a number of
churches
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BRADFORD AND DISTRICT WARM HOMES HEALTHY PEOPLE PROGRAMME EVALUATION SUMMARY
Service/activity
How many people
benefited
Who delivered
this
Food and hot meals through:
Cook and eat sessions
Hot meals
Food parcels
Food vouchers
School dinners
Travel to help people access
the meals
c.9317 hot meals, food
parcels, or vouchers for food
provided.
Services targeted at
individuals, families, families
with children, older people,
children not eligible for free
school meals and homeless
people.
As above plus
Bradford Council
Education Service
through individual
schools.
“It was a
phenomenal
amount of work
and also very
different to what
we normally do. It
was bucket loads
of extra work but
we managed it. We
were really glad to
do the project.”
Snow clearing items that can
be used by communities –
including grit spinners, rock salt
and a new gritting trailer.
A Neighbourly Help scheme to
develop street level support
networks for those most
susceptible to accidents or falls
during the winter months.
An estimated minimum of
480 people / families have
been helped by additional
support for community
gritting activities during
snow.
121 streets were targeted
to encourage people to join
the scheme, with 43 people
recruited as either street
coordinators or volunteers.
Bradford Council
Highways Dept
Community Gritting
Service
Bradford Older
People’s Alliance,
Bradford Council’s
Neighbourhood
Service
A central referral system called
First Contact to ensure that
people received all the help
available by delivery partners
and others.
209 individuals/families
had their needs assessed
resulting in 658 referrals.
Age UK Bradford
coordinated the
scheme with other
agencies dealing
with referrals.
HALE’s mobile outreach
vehicle was used to provide
cook and eat sessions
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BRADFORD AND DISTRICT WARM HOMES HEALTHY PEOPLE PROGRAMME EVALUATION SUMMARY
Strategic Summit
A strategic multi agency Summit was held on 24th May 2012 to learn lessons from the
programme, identify gaps and coordinate agencies to ensure a joined-up approach for
future winters.
51 people from a range of agencies attended. The main messages matched the findings
of the evaluation and participants were keen to look at how they can use the experience
of the programme/evaluation findings to continue to address needs related to winter
warmth.
How was the money spent?
Neighbourly help scheme £27,570
Advice & information £18,64
Practical support £137,550
Summit £2,500
Project management & evaluation £18,260
What did the evaluation find?
That this was a highly successful initiative and should be continued.
The programme was able to respond to individual needs, building on what already
exists.
The partnership arrangements formed a coherent programme, despite a diversity
of activities and organisations involved, many of whom had not worked together
previously.
Agencies wanted to be involved because of a very real commitment to the aims and
because they appreciated being involved in a programme with such real, tangible
results. It was described as a morale booster and with a high feel good factor for
those involved.
Not all organisations asked for management fees and costs were kept to a minimum.
People undertook the work in addition to their ‘day jobs’.
Despite the positive findings, there were a number of challenges.
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BRADFORD AND DISTRICT WARM HOMES HEALTHY PEOPLE PROGRAMME EVALUATION SUMMARY
Key messages emerged in themes
A number of themes emerged during the evaluation which provide details of what
worked well as well as noting some of the challenges and lessons.
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Theme 1 – Winter warmth or poverty?
Respondents were shocked by the level of need.
Whilst fuel poverty and poverty is different, in many of the areas of Bradford
where the programme was operating, they are inextricably linked.
“It’s been a real eye opener. We started off looking at winter warmth and
found out a lot about poverty.”
“There’s been an increase in demand in our services due to the nature of the
economy. People are struggling to manage, to cope with the demand due to
the volume of people. Lots of funding streams have been cut. It’s horrifying to
see what people are living with.”
2
Theme 2 – Collaborative advantage
Partnership working was extremely effective and the collaborative advantage
high.
There was good communication, with potential to improve.
There was considerable trust and respect between partners, and for and by
the Council.
There was no competition for budgets or jostling for underspends.
The Partnership Board, sub groups, general partnership working
arrangements worked well overall.
New partnerships and relationships have been developed which have already
led to new joint service delivery and may continue to do so.
A number of challenges were highlighted:
At times too much communication (emails, meetings etc) with a lack of clarity
about what was important.
One element of the work ‘fell through the net’ between agencies.
Not all agencies and departments within agencies were as engaged as would
have been helpful.
“There’s been a war-time spirit, everyone pulling together to get something
achieved.”
5
“One thing Bradford is good at is joint-working and partnership working. At
the end of the day it’s a person we’re helping. There’s been a massive benefit
to working relationships.”

BRADFORD AND DISTRICT WARM HOMES HEALTHY PEOPLE PROGRAMME EVALUATION SUMMARY
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Theme 3 – Response to need and
an individuality of approach
Central to the success of the programme was the ability to respond to
individual people and family’s needs - the approach was bottom up not top
down.
The programme built well on existing knowledge of the partners about need,
and on existing relationships with clients and other partners.
Partners were allowed to think creatively to provide solutions to individual
needs.
Services were delivered where people live or by agencies they already
accessed.
“Because we had done the older people’s work we knew what was needed
for older people.”
“[One] Children’s Centre said they had a family who weren’t accessing
services because mum did not have a buggy to enable them to get out to the
services. So we got them a buggy and gave it to the family and now they
get out. The family don’t know where it came from but they can get out and
about. It was bought from a local small supplier who wrote a letter saying
how grateful they had been used rather than a large retailer.”
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Theme 4 – Building on existing strengths
All activity built on existing knowledge and relationships. There was no
attempt to re-invent the wheel. As a result delivery happened very quickly.
Existing knowledge was used to identify need and the most appropriate ways
to meet it – including other organisations and networks where relationships
already existed.
Where delivery partners were unsure they were able to check things with the
other organisations they already worked with.
Many activities were tagged onto existing services which helped speed and
quality of activity.
Even new activities built on what already existed. Potential new avenues have
been created for some organisations.
“It was very different to what we normally do but it needed our [current]
scheme to build on or it couldn’t have happened.”
“We always knew there was a need but we didn’t have the money for
resources. Knowing the need and having the existing partnerships and
connections is why we could just do it like that.“
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BRADFORD AND DISTRICT WARM HOMES HEALTHY PEOPLE PROGRAMME EVALUATION SUMMARY
5
Theme 5 – Flexibility, trust and goodwill
There was total commitment by partners to make the programme and
partnership work.
Goodwill from individuals, and between partners impacted on every aspect of
this programme.
Partners felt that the Council worked well, worked flexibly, with a real respect
for them and trust in what they were doing.
Processes used were designed to be as flexible as possible, whilst meeting the
Department of Health criteria. The Council managed the programme well.
The absence of unnecessary bureaucracy was welcomed by all.
Partners felt this allowed them to get on and provide the best and most
responsive service.
“I found that the team at the Council were excellent. It was very, very clear
and yet they allowed the autonomy to work out what we would do. We could
make our own professional judgement.”
A number of challenges were highlighted however:
There were no common systems for finance or outputs. As a result it is
not possible to give fully accurate simple figures for total services in the
evaluation report.
Some partners felt that they would have appreciated more guidance on
expectations, attending meetings, what data to collect and monitoring to
undertake, finance, and spend processes.
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Theme 6 – Effect of timescales
All respondents said the speed had been too fast and they would have liked
more time to plan.
There were occasions when existing bureaucracy within agencies got in the
way.
As a result, at times they felt it was a ‘leap of faith’ as to whether their plans
would work.
However the evaluation found that the speed may have had a beneficial impact on
the programme and helped the programme work well:
The speed resulted in the lack of unnecessary bureaucracy.
There was a focus on action not process; people just got on with doing the job
and delivering to vulnerable and needy people.
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“The partnership working was good, all set up really quickly. Sometimes you
can over-plan stuff. Working relationships in the area are really good and in
reality it all worked out in the end. I’d rather have that than have 6 months of
planning.”

BRADFORD AND DISTRICT WARM HOMES HEALTHY PEOPLE PROGRAMME EVALUATION SUMMARY
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Theme 7 – Community engagement
A Neighbourly Help scheme gave a potential long term legacy from the
programme.
Two different models were tried out – using Council Wardens and using
voluntary sector Community Development Workers
A number of street coordinators and volunteers have been recruited.
It was easier to recruit in some areas than others.
Feedback from the projected has suggested:
Generally there was good feedback about the idea behind the scheme, but
many people didn’t feel a formal scheme is needed as they do this kind of thing
anyway.
Council involvement made some people suspicious and created barriers; for
others gave the scheme a legitimacy.
Questions arose around liability and CRB checks.
It’s too early to know whether this scheme has worked and more development
is needed.
“Hopefully, [it will generate] a greater sense of community. Neighbours that
say morning to each other, or do more than that. If it gets people talking to
each other even if they’re not doing anything, they have had that ice-breaking
to get to know your neighbours, it makes you more inclined to go
to somebody when you need.”
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Theme 8 – Signposting and referral
• The programme included a central referral system – First Contact. It was a
good decision to include a referral system.
• A central referral system could have been a place to keep programme data as
well as ensuring vulnerable people got all the help available to them.
However, there were too many challenges in this programme for First Contact to
achieve its potential due to the short timescales:
• There was insufficient time to undertake the practical development and
testing needed of the database.
• There was insufficient time to get full buy-in from all the partners and for all
partners to undertake the necessary training.
“It was helpful. You weren’t leaving people in limbo and were able
to help people.”
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BRADFORD AND DISTRICT WARM HOMES HEALTHY PEOPLE PROGRAMME EVALUATION SUMMARY
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Theme 9 – Strategic fit and strategic links
As well as the Cold Weather Plan for England, this programme fits with
The Community Strategy and with a number of other Bradford strategies.
However, although fuel poverty is mentioned, the needs addressed by this
programme are arguably addressed implicitly rather than explicitly:
The needs covered by this programme are even more basic than those
covered by the strategies.
As a result, there is a danger that these needs may not be explicitly addressed
in future strategies and action plans.
There is a need to ensure the Warm Homes Partnership Board fits within
the overall strategic partnership structure in Bradford.
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BRADFORD AND DISTRICT WARM HOMES HEALTHY PEOPLE PROGRAMME EVALUATION SUMMARY
Worked well and could do better
The evaluation found many positives as well as identifying a number of challenges or
areas that could be improved in future.
What worked well?
The activities met the aims of the bid and targeted services to needy and vulnerable
people by providing very real, practical and immediate help.
Activity responded creatively to individual need in people’s local areas.
Activity built on existing services, knowledge and networks.
Good choice of partners and delivery organisations.
Fast timescales meant emphasis on delivery, not process.
Goodwill, trust and respect between all the partners and good practice partnership
working.
Generated a real feel-good factor and morale boost for those involved.
Programme management arrangements allowed a very flexible approach and little
bureaucracy.
The Partnership board and sub group arrangements were effective.
New partnerships have been developed leading to new services.
There is a potential longer term legacy through encouraging people to be helpful
neighbours.
What could have been better?
More time for planning would have helped.
Agencies had to set up individual purchasing and distribution systems.
Communication could have been clearer and more streamlined.
More agencies and departments could have been involved.
Systems to ensure no work ‘fell through the net’ between agencies.
Common systems for monitoring and data collection.
Guidance on expectations of partner agencies.
The referral system needed more time.
Almost all partners delivered in addition to ongoing work, either through working extra
hours or by putting other work on hold. This was possible for a time-limited project but
is not sustainable.
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BRADFORD AND DISTRICT WARM HOMES HEALTHY PEOPLE PROGRAMME EVALUATION SUMMARY
What some of the people & organisations helped said
“It’s been an absolute blessing.”
“It’s been really good at reducing isolation.”
“The general feedback was that the women were very grateful.”
“It was incredibly helpful.”
“I like the fact that the team addressed food poverty not just fuel poverty.”
“The best thing is it’s guaranteeing that our children are fed.
We couldn’t guarantee that before.”
“It was really helpful. If she’s giving you something it’s going to be good.
I never asked for anything, just got it.”
“It was all fantastic. The fact that it allowed us to re-engage with families.
It did wonders for our PR.”
SureStart HBT
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BRADFORD AND DISTRICT WARM HOMES HEALTHY PEOPLE PROGRAMME EVALUATION SUMMARY
Real stories of people helped
Mr B is new to the area, having recently moved from another part of the country
and is reliant on the support of his neighbour to read and day-to-day living. He
suffers from bronchitis and poor vision, and is illiterate, unable to read or write
or call agencies to get help.
His living conditions at the point of contact were very poor. He relied on his
neighbour to help collect welfare benefits and was living in a one-bedroom flat
where there was just one mattress and portable TV with no other appliances
or furniture. Mr B was delivered an emergency food parcel, a thermometer and
several clothing items including thermal underwear, gloves, hat, scarf
and socks.
On delivering the items, Mr B commented, “I am so grateful for all of these
things. It does get very cold in this flat.”
A 56 year old Asian woman was in fuel arrears, struggling to heat her home or eat
an adequate diet. She also lacked warm clothes. The money awarded allowed her
to buy clothes, blankets and heaters. She also collected food parcels provided
by the food bank. She is now working towards managing her money and talking
with the fuel companies to arrange a payment plan.
A 46 year old female who has scoliosis of the spine, a duodenal ulcer, asthma and
a low blood count has a 6 year old daughter who helps to care for her. Money is
an issue for mum and she only puts the heating on when her daughter is in the
house and switches it off when her daughter goes to bed. The scheme allowed
her to pay her fuel bills, to buy her daughter a new coat and to buy blankets
and bedding.
One asylum seeker started to cry when he was given a pair of gloves. He couldn’t
buy gloves with his vouchers and he was just so cold. Another asylum seeker was
given a food parcel. She opened the Weetabix in the parcel and started eating it
straight away.
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BRADFORD AND DISTRICT WARM HOMES HEALTHY PEOPLE PROGRAMME EVALUATION SUMMARY
A 47 year old Asian male with a wife and 6 children who has severe mental health
problems and asthma. The boiler broke and could not be mended. The national
Warm Front scheme was contacted to furnish a new boiler but they were not
able to fund this. The bedrooms were cold and so the whole family would gather
round one gas fire downstairs. This was a distraction for the older children who
had university work to do. The scheme bought them heaters for their bedrooms,
curtains, draft excluders and warm clothes.
Through joint working with a Drugs Service, one client in very difficult
circumstances – no money, no food, no electricity or gas (on prepayment meter)
was identified. The client was given small amount of cash to top up his meter and
vouchers for supermarket. He cried, saying he couldn’t believe that someone
would be willing to help in this way.
One dad specifically requested wellies for himself so that he could take his
children out in the bad weather. He planned to take them to the local woods
as they do not have enough money for trips to town. This is very important
for this particular family as mum has mental health issues and is agoraphobic
and is rarely able to get out with the children. The family reported improved
relationships.
A woman had received a quilt, wellies, pillows, and a fleecy blanket from the
scheme. She had arthritis, was in a lot of pain and needed to keep warm. Then
a few days later she asked for an electric blanket. She rang the agency to tell
them how the electric blanket has changed her life. She was nearly crying on the
phone saying how the agency worker is her angel and like a butterfly.
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BRADFORD AND DISTRICT WARM HOMES HEALTHY PEOPLE PROGRAMME EVALUATION SUMMARY
What next? The evaluation
recommendations for the future
“Its re-enforced how
much need there is.
The stories are not
unusual and it will
be hard next winter
if there are no more
resources knowing
the need is there.
We’ve opened a can
and will be sad if
between us all we
can’t come up with
something knowing
what difference it’s
made.”
“Even if the funding
is one-off at least
it has highlighted
what is needed and
we could look at
how we could be
more creative in
how to get it, this
could be something
that we could
maximise. The need
is there, unearthed
the fact that people
are hungry. Now
we’ve identified it
we need to think
where we take it,
what we do about
it, what we can
collectively do
about it.”
Findings from the evaluation are that all efforts should be made to continue similar
activity, though the report makes a number of recommendations for changes:
If the programme continues, it is important that it is fully funded.
It should continue to be provided by range of partners.
The question of whether services should be more targeted at specific groups or
areas should be considered.
A potential private sector sponsor should be sought.
All public sector commissioners, including the NHS, should look at potential future
funding.
A future project needs to retain the flexibility, trust and lack of bureaucracy of this
programme. However standard monitoring systems are needed.
A central referral process needs to be included.
A central purchase/distribution system should be set up.
All organisations should look at what they do in the light of this project.
Further work is needed to assess the Neighbourly Help scheme.
In addition, the evaluation recommends:
All relevant organisations should look at their activities in the light of this
programme.
If no funding is available, the Partnership Board should still consider how to still
address winter warmth basic needs.
The Partnership Board ensures that Bradford strategies, including The Community
Strategy and NHS plans address the basic needs covered by this initiative.
The lessons from this programme are considered when looking at future
arrangements for the Social Fund and Health Promotion responsibilities which are
due to transfer to the Council.
ANTP should consider running an on-going grant programme.
Items purchased,
SureStart HBT
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BRADFORD AND DISTRICT WARM HOMES HEALTHY PEOPLE PROGRAMME EVALUATION SUMMARY
For more information or a copy of the full evaluation report contact Tina Butler or
Becky Allright at CommissioningInbox@bradford.gov.uk
This summary was produced by Peg Alexander and Judith Foster, independent
consultants. www.pegalexander.com and judith.foster117@ntlworld.com.
It was produced on behalf of the Warm Homes Healthy People Partnership Partners.
Some partners were involved in advice and guidance to the partnership as a whole
through regular meetings, whereas others were responsible for direct delivery or
assistance to the delivery partners.
The partners were: Advice Network and Training Partnership, Age UK Bradford
and District, Alzheimer’s Society, Bradford CAB – Energy & Advice Partnership,
Bradford MDC: Adult & Community Services, Bradford MDC: Children’s Services,
Bradford MDC: Neighbourhood Services, Bradford MDC: Regeneration & Culture,
Bradford Older People’s Alliance, Bradford Volunteering Strategic Partnership,
Carers Partnership, Carers’ Resource, Family Action (Canterbury Advice Centre),
HALE, HOTS, Incommunities (Assisted in delivery of the winter warmth guides),
Innchurches, Joseph Rowntree Foundation, Learning Disability Partnership, Meri
Yaadain Dementia Team, Older People’s Strategic Partnership, Positive Minds, Public
Health (Every Baby Matters), Public Health (NHS Airedale, Bradford & Leeds) , Senior
Show the Way (Bradford District Care Trust), Strategic Disability Partnership, West
Yorkshire Fire Service (Collected and delivered Winter warmth guide to stations).
City of Bradford MDC
www.bradford.gov.uk
Bradford District
Care Trust