StrategicAssessment
Title:ExploreOptionsfortheFutureoftheChildren&
YouthServices(CAYS)Foundation
Preparedby:Debbie-AnnWhittaker,ChiefPolicyOfficerandSophyBroad,
SeniorPolicyOfficer,MinistryofCommunityAffairs,Youth&Sports
ProjectSponsor:DorineWhittaker,ChiefOfficer,MinistryofCommunityAffairs,
Youth&Sports
ThisStrategicAssessmenthasbeendevelopedusingthetemplateforthe
ProjectFuture“ConceptualisationPhase”.
Proprietary Notice and Liability Disclaimer
Theinformationdisclosedinthisdocument,includingalldesignsandrelatedmaterials,isthevaluable
propertyoftheCaymanIslandsGovernment(CIG).TheCIGreservesallcopyrightandallproprietary
rightstothisdocument,includingalldesign,manufacturing,reproduction,use,andsalesrightsthereto,
excepttotheextentsaidrightsareexpresslygrantedtoothers.Thismaterialhasbeenpreparedforuse
bytheCIGandshouldnotberelieduponbyanyotherperson.
Alldocumentsdevelopedbasedonthistemplateshouldincludeanappropriateacknowledgement.For
furtherinformationpleasecontact:
• MaryRodrigues,ChiefAdvisor,StrategicReforms([email protected]),
• TashaEbanks-Garcia,DeputyChiefAdvisor([email protected]),or
• JayAutor,SeniorAdvisor([email protected]).
Version 2.7
© Crown Copyright 2015
DocumentHistory
Version
IssueDate
1
5July2016
Changes
2
26July2016
Name
Sign-OffDate
Amendmentsmadetoaddress
issuesidentifiedfromreviewby
Premier’sSpecialAdvisor&SRIU.
DocumentSign-Off
Role
Debbie-AnnWhittaker&
SophyBroad
DorineWhittaker
PreparedBy:
ChiefOfficer:
Minister:
Hon.OsbourneBodden,JP
20July2016
26July2016
26July2016
CONTENTS
PART1:OVERVIEW.......................................................................................................
1.1 Introduction................................................................................................................
1.2 Purpose.......................................................................................................................
PART2:STRATEGICCONTEXT.......................................................................................1
2.1 OrganisationalOverview...........................................................................................1
2.2 KeyDrivers................................................................................................................4
2.3 RelationshiptoGovernment’sPolicyPriorities.........................................................5
PART3:THECASEFORCHANGE...................................................................................5
3.1 InvestmentObjectives..............................................................................................5
3.2 ExistingArrangements..............................................................................................6
3.3 KeyBusinessProblem(s)...........................................................................................9
3.4 KeyConsiderations..................................................................................................10
3.5 KeyConstraintsandExternalDependencies...........................................................11
3.6 Conclusions.............................................................................................................11
PART4:IDENTIFICATIONANDSCREENINGOFPOTENTIALSOLUTIONS.......................12
4.1 EvaluationCriteria...................................................................................................12
4.2 LongListofOptions.................................................................................................13
4.3 ScreeningofOptions...............................................................................................13
4.4 Short-ListedOptions...............................................................................................19
4.5 StakeholderManagement.......................................................................................20
PART5:INVESTMENTREQUIREDTODEVELOPANOUTLINEBUSINESSCASE...............22
5.1 Methodology...........................................................................................................22
5.2 FinancialImplications..............................................................................................22
5.3 PublicServiceImplications......................................................................................23
5.4 LegalImplications....................................................................................................23
Title:ExploreOptionsforthefutureoftheChildren&YouthServices(CAYS)Foundation
PART1: OVERVIEW
1.1 Introduction
Cabinet is interested in exploring whether there are potential efficiencies and synergies to
reintegrating the Children and Youth Services (CAYS) Foundation into the Department of
Children and Family Services (DCFS) or with the services provided directly through the
DepartmentofCounsellingServices(DCS).
Any consideration of the future of CAYS will link with Projects PF 02, Improving the
Effectiveness of Arrangements for Developing and Implementing Drugs Policy, and ABO 13,
ExploringApproachestoEarlyIntervention.
Theprojectshould:
1. Determinetheextentofanyefficienciesthatwouldarisefromre-integratingCAYS;
2. Examinewhetherthisreintegrationwouldenablemoreeffectiveservicedelivery;
3. Identify any risks arising from reintegration, in particular to CAYS access to nongovernmentalfunding;and
4. ConsiderthepotentialtorevisetheroleofCAYSinlightofanyreformofDrugsPolicy
ImplementationandanynewapproachtoEarlyIntervention.
ThisproposalwashighlightedintheErnst&YoungReportentitled“ProjectFuture:Creatinga
SustainableFuturefortheCaymanIslands”,September2014,underOtherRecommendations
Section 43 which identified bringing CAYS back into the DCFS as a potential improvement for
Governmentoperations.
In scope – the organisation and structure of CAYS, the DCFS and the DCS and programmes
offeredinsofarastheymightbebetterrun;
Out of scope – the other agencies that provide residential care to children (NCVO and DCFS’
MapleHouse).
1.2 Purpose
This Strategic Assessment seeks to provide Cabinet with the necessary information to
determinewhethertheinvestmentproposalshouldprogresstothenextphaseofdevelopment
-anOutlineBusinessCase.
TheStrategicAssessment:
•
•
•
Definesandidentifiespossibleroutestoconfirmtheneedtoinvestinchange;
Identifiespreferredwaysforward,supportedbyalimitednumberofviableshort-listed
optionsforfurtheranalysis;and
Will be used to develop the need for the investment required to develop an Outline
BusinessCase.
PART2: STRATEGICCONTEXT
2.1 OrganisationalOverview
CAYS,DCFSandDCSallworktoincreaseprotectivefactorsinordertostrengthenfamiliesand
buildtheresilienceofchildren.Morespecifically,tostrengthenafamilyandnurtureresiliency
in children their basic material needs, such as food, clothing and shelter, must be met; they
need to feel safe and protected at home, at school and in the community; they must have
nurturing and supportive connections to and relationships with family members, adults
(mentors),peers,communityandinstitutions;andtheymustbeprovidedwithopportunitiesto
participate in skill-building activities which allow them to pursue their interests, explore their
strengthsandgainasenseofpurpose,confidenceandhopeforapositivefuture.
Generally,theservicesprovidedbytheDCFSareprimarilyintervention.Onceachildisremoved
fromafamilyduetoexperiencingsignificantharmordisplayingseverebehaviouralissues,the
DCFShaveadutytoreceiveachildintoitscareandtokeepthechildinitscarewhileanOrder
remains in force. Once a child is removed from their parents care, the DCFS makes a
determinationastowherethechildshouldbeplaceddependentupontheirspecificneeds.A
childmaybeplacedeitherwitharelative,aprivatefosterhomeorwithMapleHouse(children
withdisabilities),NadineAndreasFosterHome(fostercare)oroneoftheCAYShomes,namely
theFrancesBoddenChildren’sHomeorBonaventureBoysHome.Thesealternativeplacement
options,however,areoutofscopeforthepurposeofthisSA.TheDCFSisalsoresponsiblefor
registeringCAYSfacilitiesundertheChildrenLaw(2012Revision)andinspectingthefacilities.
Lastly,DCFShasalegalobligationtoensurethatchildrenplacedinresidentialcarehaveaccess
to services which enhance their life skills and bring about positive changes in their families,
whichofteninvolvesworkingcloselywithentitiessuchasEducationandHealth.
On the other hand, the DCS and CAYS provide primarily therapeutic treatment services to
families.Thismayoccuronanindividualorgroupbasisexploringcoreissuesandbuildingupon
lifeskillsandcopingstrategies.Inaddition,theFamilyResourceCentre(FRC),aunitwithinthe
DCS, provides psycho-educational workshops or programmes to strengthen and build healthy
relationshipswithinfamilies.
1
On19November2002,theExecutiveCouncil(nowCabinet)approvedthesubscriptionstothe
Memorandum of Association and the Articles of Association thereby forming the CAYS
FoundationasaGovernment-OwnedCompanyasperSection80oftheCompaniesLaw(2013
Revision).ThekeyaimsofCAYSareto:
1. Manageandoperateyouthrehabilitationandcaringfacilities;and
2. Provide rehabilitation, and youth development programmes for delinquent and at-risk
childrenthatwillenhancetheircopingmechanismsanddealwiththecoreissues.
TheCaymanIslandsGovernment(theGovernment)isresponsibleforprovidingthefacilitiesin
which CAYS operates its programmes, namely the Frances Bodden Children’s Home (FBCH),
comprisingoftwobuildings,inSavannahandtheBonaventureBoysHome(BBH)andPhoenix
HouseinWestBay.ThesefacilitiesareinsuredbytheCIGviatheMinistryofCommunityAffairs,
YouthandSportsandtheDCFS.Directoversightofthefacilitiesandprogrammes,however,is
managedbyaBoardofDirectorsappointedbyCabinet.
In2015/16,theMinistryprovidedCAYSwithanannualgrantof$2,178,000.CAYSmanagefixed
assets including office equipment, computer equipment, motor vehicles and leasehold
improvements.TheprovisionofCAYSservicestotheGovernmentismanagedthroughPurchase
and Ownership Agreements signed by the Minister responsible for Community Affairs, Youth
and Sports and the Chairman of the CAYS Board of Directors. Furthermore, the Ownership
AgreementsetsouttherolesandresponsibilitiesoftheGovernmentandCAYSandprovidesfor
a monitoring mechanism to ensure that services are being delivered in accordance with best
practice.Onamonthlybasis,alongwithaninvoicetotheMinistry,CAYSwillprovideareport
detailing the number of placements offered; number of family educational groups offered;
number of treatment plans completed and the number of placements offered at each home
based on the previous month’s activities. Additionally, the DCFS carries out a monthly
inspectionwhichinvolvesanevaluationofprogrammecomponentsandanassessmentofthe
physicalstateofthefacility.
CAYS is registered as a Community Home under the Children Law (2012 Revision) in order to
admitchildrenonCareOrders.Inaddition,CAYShasalsobeendeclaredasYouthRehabilitation
Schools and Detention facilities for the purposes of the Youth Justice Law (2005 Revision).
Phoenix House has been declared as Secure Accommodation under the Children Law (2012
Revision).
2
Giventhis,theCAYScoreactivitiesincludethe:
• Provision of 24-hour residential care to children due to care and protection needs or
offendingbehaviours.
• Preparation of children for reintegration or independent living including preemploymentpreparationandlifeskillstraining.
• MaintenanceoftheGovernment-Ownedfacilitiestoensurethehighestofstandardsare
achievedinregardstotheprogrammesandtreatmentprinciples.
• Provision of policy advice to the Minister on the direction of youth rehabilitation and
interventionstoassisttheirintegrationbackintosociety.
BBHisformaleswhohavebeenremandedorcommittedonYouthRehabilitationOrdersunder
theYouthJusticeLaw(2005Revision)betweentheagesof13-19.Theaveragenumberofmales
residentatthefacilityare8;however,theyhavethecapacitytoaccommodate10.Phoenix
House,locatedattheBBHsite,hasbeenapprovedbyCabinetasSecureAccommodationunder
theChildrenLaw(2012Revision),withtheconditionthatitaccommodatesonlyonesexatany
giventime.
FBCHisformalesandfemaleswhoareinneedofcareandprotectionundertheChildrenLaw
(2012Revision),aswellasforfemalesonYouthRehabilitationOrders.TheresidentsofFBCH
arebetweentheagesof13-19whoareeitheronCareOrdersorYouthRehabilitationOrders.
The average number of residents at FBCH are 10; however, they have the capacity to
accommodate14.Aspartoftheircareplans,residentsattendmainstreamschoolandworkto
achievingtheircareplangoals.
TheGeneralManager(GM)isresponsiblefortheoversightandmanagementofthetherapeutic
programme and the overall operation of all facilities. The GM reports to a Board of Directors
whoareappointedbyCabinet.TheDirectorsserveonavoluntarybasisandtheirfunctionsare
guided by the Articles of Association. Both BBH and FBCH have a Manager who has
responsibility for the operation of the facility including community outreach, maintenance
issues,budgetingmattersandfundraising.TheyareeachsupportedbyanAssistantManager
whoisresponsiblefortheclinicalandtherapeuticaspectsoftheprogrammeandsupervisionof
Senior Counsellors. Each facility has Senior Counsellors who are responsible for the daily
operation of the programme and providing feedback to the Assistant Manager on quality
controlaspects.
CAYShaveaFamilySupportCounsellorwhoprovidesfamilyeducation,outreachandreferrals
forfamiliesinneedofotherservices.GiventhechallengesthatCAYShasexperiencedwithits
BBH residents accessing education, a decision was made to hire its own Educators who are
responsibleforensuringthattheboysatBBHareaffordedtheopportunitytoaneducation.
3
Additionally, each Home has Youth Support Workers who work directly with residents to
advocateontheirbehalfandthedailytreatmentexpectationsforresidents.Eachfacilityhasa
Food Service Worker who is responsible for food preparation, including menu plans and
purchasingoffooditems.WhiletherearedifferentlevelsofstaffemployedwithCAYS,allstaff
interact and form relationships with residents. Additionally, all staff are exposed to positive
youth development theories and training to ensure that therapeutic treatment is occurring
throughouttheprogramme.Stafftrainingoccursonamonthlybasisinregardstotherapeutic
treatmentphilosophyandapproach.Eachquartersubstanceabuseeducationalsotakesplace.
Additionally,traininginwatersafety;firstaidandCPRandSafeCrisisManagement(SCM)takes
placeonanannualbasistoensureon-goingcertificationofallemployees.
2.2 KeyDrivers
Therearetwokeydriversthathavegivenrisetotheproposedproject:
•
•
The Project Future Programme and the need for improved effectiveness and
effectiveness in the operations of Government agencies within a context of fiscal
constraints.
TheCrimeReductionStrategy(CRS)waspresentedtotheLegislativeAssemblyonbehalf
of the National Security Council in March 2011 and was subsequently adopted and
agreed by Cabinet in May 2011. The CRS recommended that “a review should be
undertakenofCAYS,DepartmentofChildren&FamilyServices,theYouthServicesUnit
and the Department of Counselling Services to identify common areas of responsibility
withaviewtorationalisingtheseorganisations.”
The CRS was assigned to the Policy Coordination Unit in the Cabinet Office for its
implementation and monitoring. Agencies are required to provide updates, upon request, to
theNationalSecurityCouncilontheirprogresswithrecommendations.
Prior to the recommendations of the CRS, however, the Ministry had already embarked on a
review of CAYS. Between 2010-12, a Working Group convened by the Ministry completed a
proposal to strengthen CAYS services by implementing a Therapeutic Community Programme
targeting youth in need of a more intensive intervention in addition to care and protection
services.TheMinistry,inpartnershipwithCAYS,assistedwiththerecruitmentofspecialiststaff
fortheTherapeuticCommunityProgrammeandfacilitatedadditionaltrainingandcoachingat
bothfacilitiesprovidedbytheMissouriInstituteofYouthServices.
Additionally,in2011,aPublicServiceReviewofDCFSrecommendedthattherebeaseparation
of welfare services from social work services. This separation led to the establishment of the
Needs Assessment Unit (NAU) whose primary responsibility is to conduct needs assessments
andmanagethedistributionofpoorrelieftothoseinneed.
4
TheReviewalsorecommendedthatsocialworkservicesberestructuredtobetteraddresschild
safeguardingconcernswhichresultedinthecreationofintakeandlong-termteamswithin
DCFS.
Finally, as part of the Project Future Programme, the Ministry has been assigned a Strategic
Assessment to evaluate the existing activities which could form part of an early intervention
programme for children and young people at-risk for criminality. This would involve agencies
such as Youth Services Unit, Department of Counselling Services, Department of Sports,
Education Department and Health Services Authority. This project is due to be completed by
December2016andwillentailacross-ministerialapproachtoitsdevelopment.
2.3 RelationshiptoGovernment’sPolicyPriorities
Cabinet has established the following high level investment objectives for the project which
havebeenexploredandfurtherrefinedinthisSA:
•
•
•
ImprovetheefficiencyandeffectivenessofGovernmentoperations.
ReducethesizeofGovernment
Improvecommunitysafety
Thisprojectisalsoconsistentwiththefollowing:
•
•
TheGovernment’sBroadOutcomesofawork-readyandgloballycompetitiveworkforce
(2),amoresecurecommunity(3),afitandhealthypopulation(6)andequityandjustice
inasocietythatvaluesthecontributionsofall(12).
The CRS highlights the need for the country to holistically address the connections
betweenat-riskyouthandcriminalactivity.
PART3: THECASEFORCHANGE
3.1 InvestmentObjectives
Itisapparentthatagenciesarecollectingdatabutarenotconductingaproperanalysisinorder
toidentifymeaningfulpatterns.Withthisinmind,theBusinessWritershadtoensurethatany
investmentobjectivesarespecificandasSMARTaspossibletoensurethefeasibilityofdelivery.
Therefore,detailsaboutthemeasureswillbeincludedintheOutlineBusinessCasewhenmore
dataanalysisisavailable.
5
InvestmentObjective1:
To reduce the size of Government and increase efficiencies by improving synergies and
minimizing the duplications in responsibilities amongst service providers over the next 3
years.
Due to CAYS being a Government-owned Company, employees are not classified as Civil
Servantsandtherefore,arenottechnicallyapartofCoreGovernment.However,theErnst&
Young Report when referring to “Government” included core Government Ministries and
Departments,StatutoryAuthoritiesandGovernmentCompanies.ThePremierestablishedthat
the Project Future Programme is “… a comprehensive and far reaching programme of public
sectorreform”(ForewordbyPremier,ProjectFutureProgrammeBrief,October2015).
Hence,itisimplicitthatanyreferenceto“Government”isinclusiveofStatutoryAuthoritiesand
Government-ownedCompanies.
InvestmentObjective2:
Toimprovecommunitysafetybyincreasingthenumberofchildrenwhohavecompletedtheir
careplansoverthenext3years.
3.2 ExistingArrangements
ToreducethesizeofGovernmentandincreaseefficiencies(IO1):
TheDCFS,theDCSandCAYSservicesandprogrammesareallapartofthecontinuumofcare
forfamiliesandchildren.Collectively,itisthroughtheirservicesandprogrammesthatafamily
in crises will experience a decrease in the level of risk and harm it is exposed to such as
violence, criminal involvement, unemployment and drug abuse/misuse. Hence, there are
synergies in services between the agencies as CAYS plays a role in both intervention and
treatment.
TheDCSandCAYSprovideprimarilytherapeutictreatmentservicestofamilies.Thismayoccur
on an individual or group basis exploring core issues and building upon life skills and coping
strategies.TheFRCalsoprovidespsycho-educationalworkshopsorprogrammestostrengthen
andbuildhealthyrelationshipswithinfamilies.Inaddition,theDCScurrentlyoperatesitsown
residentialtreatmentfacilitiesforadultswithsubstanceabuseissues.CAYSandDCS,therefore,
sharethesametreatmentphilosophyandcomponentssuchasbehaviourmodification,aclientcentred and strength-based therapeutic community model all delivered by specialist staff.
Furthermore,theDirectoroftheDCSprovidesguidancetotheGeneralManagerofCAYSinan
informalmanneronclinicalandoperationalmatterssuchasnavigatingthelegalsystemwhenit
comestotheplacementofclients.
6
CAYS provide services to DCFS in order to ensure that the requirements of the Children Law
(2012Revision)andtheYouthJusticeLaw(2005Revision)areupheld.Thatis,CAYSassistDCFS
withtheinterventioninfamilylifewhenthereisareasonableconcernregardingthewelfareof
a child and work along with the family to ensure that services and programmes are readily
availableinordertominimisetheriskfactorsthefamilyisexposedto.
CAYS employs 32 full-time Public Servants; 9 of which are Caymanians. Staff specialise in
positive youth development and rehabilitation techniques. This includes conflict resolution,
therapeutic intervention and the ability to build positive relationships with adolescents who
have experienced some trauma or harm in order to change their at-risk behaviour in a
structured setting. CAYS, therefore, is the only organisation on-island with staff trained to
providerehabilitationforat-riskadolescentsinaresidentialsetting.
The wrap around services (education, family outreach, independent living and financial
assistance) required by CAYS residents’ need to be strengthened for both when the client is
residingatthefacilityaswellasoncetheyhavecompletedtheprogramme.Intheabsenceof
someoftheseservices,theCAYShasexpandeditsowninordertoimprovetheoutcomesfor
their residents. As a result, the Family Support Counsellor provides family education and
outreach services to resident’s families. This entails conducting home visits and interventions
with the family and engaging parents in the process of rehabilitation. This overlaps with the
mandate of the FRC which provides family skill-building programmes, individual parent
coaching, parenting classes, and support group programmes. The Family Support Counsellor
does not interface with Social Workers or the FRC. Both the position of Family Support
Counsellor and the FRC receive funding from Hedge Funds Care to offer such services to
familiesinneed.
TheEducatorsatBBHdevelopIndividualEducationPlansforeachresidenttoensurethatthey
are able to access the national curriculum. A decision for residents to return to mainstream
school is made on an individual basis depending on how successful each child is at achieving
theirtreatmentgoals.CAYS,therefore,isprovidingeducationtoyoutheventhoughthisisnot
theirmandate.TheEducationLaw(2010Revision)stipulatesthatitisthedutyoftheEducation
Council to promote education and gives the Ministry responsible for Education the legal
obligation to ensure that children in the Cayman Islands have access to educational
opportunities.Todate,aServiceLevelAgreementwhichoutlinestherolesandresponsibilities
ofbothentitieswhenitcomestoeducatingthisgroupofchildrenhasnotbeensignedbyCAYS
ortheMinistryofEducation.
Toimprovecommunitysafety(IO2):
Care plans are a tool in social work practice used to establish a strategy for intervention in a
child’slifeandhisorhereventualdischargefromtheplacement.
7
It is used by social workers and other stakeholders to assess the social, educational,
developmental, family and health needs of the child and identifies goals which act as a
roadmapforreintegrationintothecommunity.Italsoidentifiesthepartiesdirectlyresponsible
forensuringtheachievementofeachgoalalongwithtimelines.Hence,acareplanisessential
forachildplacedinresidentialcareasitisintendedtomaximiseopportunitiesandresources
fortheoptimaldevelopmentofthechild,whileputtinginplaceprotectivefactorswhichbuffer,
alterorreversenegativeoutcomesassociatedwithriskfactors.Currently,however,thereare
twodifferenttypesofcareplanprocessesuseddependingonwhetherthechildisplacedona
CareOrderorYouthRehabilitationOrder.
UndertheChildrenLaw(2012Revision),DCFSislegallyresponsibleforchildrenincare.Children
being placed in care are most likely to enter the system on an Interim Care Order pending
furtherinvestigationbyDCFS.Uponcompletionoftheinvestigation,aCareOrderwillbemade
shouldtheinvestigationfindthatneglectorabuseisoccurring.AnotheroptionfortheCourtis
to make a Supervision Order so that the DCFS can monitor the child and their family. For all
threeoftheseOrders,theDCFSisrequiredtodevelopaCarePlan.
ToassisttheDCFS,LegalCounseldevelopedatemplatereferredtoasa“careplan”whichmust
becompletedfortheCourtpriortoaMagistrateplacingachild.Itdetailsmatterssuchasthe
wishes of the child, health care, education, placement details and a timetable (Appendix I).
However, it differs from the standard social work care plan described above as it does not
clearly outline targeted goals that are unique to the child’s needs and circumstances. DCFS
reports that since the development of this tool by Legal Counsel, social workers have been
100%compliantwithcompletingit.CAYS,however,reportthattheydonothaveinputintothe
development of this document prior to its presentation to the Court. Additionally, these care
plansaresubmittedtoCAYSonaninconsistentbasis;thatis,itcouldbereceivedsomemonths
aftertheadmissionofachild,ifatall.Asaresult,CAYSdevelopaninternalTreatmentPlanfor
thechilduponadmissioninordertoestablishtheirstrategyforcare.SuchaTreatmentPlanis
developedwithoutinputfromthesocialworkerswhomayhaveadditionalinformationonthe
dynamicswithinthefamilyandcommunity.
Incontrasttothis,theYouthJusticeLaw(2005Revision),beinganolderLaw,doesnothavethe
same provisions as the Children Law (2012 Revision) in regards to care planning and,
consequently,havingacareplanpreparedpriortotheplacementofachildisnotmandated.
The DCFS, therefore, continues to use the standard and more detailed care plan format for
childrenonYouthRehabilitationOrders(seeAppendixII).Onceagain,thesecareplansarenot
submitted to CAYS on a consistent basis and, as a result, an internal Treatment Plan is
developed.GiventhatCAYSdeveloptheirownTreatmentPlansuponadmissiontheincentive
forSocialWorkerstodevelopCarePlansforchildrenonYouthRehabilitationOrdersisreduced.
Furthermore,sinceCarePlansandTreatmentPlansrarelycoincide,thetransitionofthechild
from the placement to reintegration into the community is impacted. CAYS reports that
8
discharge planning is not occurring in a holistic or strategic way and, as a result, hinders the
effectivetransitionofthechildbackintothecommunity.
3.3 KeyBusinessProblem(s)
KeyBusinessProblem1:
FailuretomaximisesynergieshasincreasedthesizeofGovernment.
TheGovernmenthascommittedtostrengtheningoverallgovernanceandmanagementofthe
Public Sector. It is imperative for the Ministry, therefore, to ensure that it explores possible
synergiesinservicestodetermineoptionsformergingorrestructuringagenciesunderitsambit
inordertoreducethesizeofGovernment.
KeyBusinessProblem2:
Thereareduplicationsinresponsibilitiesintheareasoftherapeuticservicestofamiliesand
provisionofeducationwhichresultsinagenciesnothavingthefullcomplementofresources
neededtocarryouttheirmandates.
Government resources are minimal and therefore the need to be effective and efficient is
critical to its sustainability. With duplication in responsibilities across agencies this limits
Government’s ability to properly allocate the necessary resources thereby minimising
successfuloutcomes.Forexample,CAYScurrentlyfundstheemploymentoftwoEducators;a
service that does not fall within their remit. Having to employ two Educators costs
approximately CI$105,000 per annum, not including health and pension benefits. However, if
the Ministry of Education was to provide this service to CAYS residents this funding could be
reallocated to a more suitable need of the organisation given its mandate. In addition, the
Ministry of Education would have oversight of and be able to implement quality assurance
measures.
SinceDCShasassumedtheresponsibilityofFRC,ithasbeentryingtoenhanceitscapacityto
workmorecloselywithfamiliesinthecommunity.DCShasrecognised,forexample,thatthere
isaneedtoexpanditsparentingoutreachbyconductinghomevisitsinordertogivefamilies
morehandsonsupport.However,duetotheircurrentfunding,theydonothavethecapacity
toenhancetheseprogrammecomponents.Withtheexistingarrangements,bothCAYSandDCS
receivefundingthroughHedgeFundsCaretoworkwithfamilies.Asaresult,thefullamountof
fundingwhichshouldbeprovidedtoDCStoassistinfulfillingitsmandateisnotavailable.
KeyBusinessProblem3:
Thelackofaccountabilityandstructureresultsinincompletecareplanningand,therefore,
childrenreturntoaharmfulenvironment.
9
BasedondiscussionswithDCFSandCAYS,insomeinstancesCarePlansarenotcompletedand,
iftheyare,theyarenotmadeavailabletoCAYS;hencetheheavyrelianceonCAYSTreatment
Plans. Furthermore,thereisnotamechanisminplacethatmandatesthesharingormonitoring
of Care Plans amongst partnering agencies. DCFS is not collecting data on the care planning
process and, therefore, they are unable to properly examine it to determine its effectiveness
andthecorrespondingimpactonaccountability.
Withoutcompletedcareplansthelikelyconsequenceisthatachild’sissues,aswellasthose
thatpresentintheirfamilies,arenotadequatelyaddressed.Hence,achildcouldbedischarged
from their placement to an environment that continues to be harmful and dysfunctional and
thecommunitysafetyisfurthercompromised.
3.4 KeyConsiderations
Currently,CAYSistheonlyon-islandfacilitywhichprovidesrehabilitationforat-riskadolescents
in a residential setting. Given that the Government relies heavily on CAYS for residential
treatment services for children, therefore, it is necessary to explore options to improve
efficienciesandcommunitysafety.Byaddressingtheidentifiedproblemsthepotentialexiststo
mitigatethelevelofliabilitythattheGovernmentisexposedtoregardingchildrenplacedinits
care.
Furthermore, effective care planning will ensure the continuity of care, which is especially
crucialforclientswithlong-termorcomplexneeds,andreducethelikelihoodthatachildwill
slip through the net. Without effective interventions a child’s development will be hampered
and he or she may experience any number of problems including alcoholism, illicit drug use,
depression, increased risk for partner violence, suicide attempts, adolescent pregnancy,
disengagementfromfamilyandthecommunityandahostofotherhealth-relatedqualityoflife
issues.Allofwhichcompromisecommunitysafety.
With the advent of the Bill of Rights, Freedoms and Responsibilities in the Cayman Islands
ConstitutionOrder2009(BillofRights)andtheChildrenLaw(2012Revision)thecountrymust
nowconsidertherighttofamilylife,restrictinglibertyandthetreatmentofprisoners.Hence,
thisProjectistimelyasitreflectsthecountry’smovementtowardsstrengtheningrehabilitation
andchildsafeguardinginanefficientandeffectiveway.Inaddition,asevidencedbythehighlevel priority Government has placed on rationalising and improving efficiencies of its
operations,aswellasontheimplementationoftheCRS,thisisanopportunetime.
10
3.5 KeyConstraintsandExternalDependencies
Table1:KeyConstraintsandExternalDependencies
CONSTRAINTS
Resources&Timeframe
ActivityPerformance
DEPENDENCIES
Duplications(IO1)
Synergies(IO1)
PSI02
ABO13
Notes
Inthe2016-17Budget,theDCSdoesnothavethefundstoprovide
enhancedparentingservicesundertheFRC
TheleadershippositionatDCFShasbeenvacantsinceSeptember
2015.ThepositionofDirectoristemporarilyfilledbyanacting
appointment,whichimpactsservicedelivery.Specifically,the
accountabilityandstructurerequiredforeffectivecareplanning.
Educationcurrentlydoesnothavethecapacity(e.g.,resources,
facilities)toeducateyouthwhohavebeenconvictedofacriminal
offenseandorderedintoaresidentialfacility.
Lackofempiricaldatatoassesstheeffectivenessofcurrentcare
planningprocesses.
NotesandManagementStrategies
Therelevantagenciesneedincreasedresourcesinordertoeffect
theproposedchanges.
Educationneedstofirststrengthenitscapacitytoadequately
addresseducationalneedsofchildrenconvictedofacriminal
offenseandorderedintoresidentialfacility.
Decisionsregardingpossiblemergersorarestructuringare
dependentuponmeetingbudgetdeadlines(i.e.ensurethatany
suchdecisionissupportedbybudgetallocation).
AnyconsiderationsofthefutureofCAYSwilllinkwiththeproject
toexploreoptionstoimprovetheeffectivenessofcurrent
arrangementsfordevelopingandimplementingdrugpolicy.
AnyconsiderationsofthefutureofCAYSwilllinkwiththeproject
toexplorethepotentialforacomprehensiveapproachtoearly
interventiontosupportchildrenandyoungpeopleatriskof
criminality.
3.6 Conclusions
Based on the preceding analysis, there is an opportunity for Government to operate more
efficientlyandeffectivelyindeliveringtheseservices.
Ifthedecisionismadetomaintainthecurrentstructuretheremaynotbeanyinitialincreases
in funding to CAYS. However, the Government-owned Company will eventually require
additional funds as they expand their services. Further, maintaining the status quo may
potentiallygiverisetothefollowingissues:
•
Increase liability concerns for the Government as there are no clear mechanisms in
placetoensureeffectivecareplanningand,therefore,achildcouldbedischargedback
11
intotheaharmfulenvironmenttherebyexposingthecommunitytofurtherdysfunction
andanti-socialbehavior;
• Failure to maximize the synergies in services means that the strategic aim to reduce
Governmentwillnotbemet;
• Agencies will not have the full complement of resources needed to carry out their
mandatesshouldtheduplicationinrolesandfunctionscontinue.
GiventheimplicationsthishasforthesizeofGovernment,communitysafetyandefficiencies
identifiedintheprecedinganalysis,thereisaconvincingcaseforchange.
PART4: IDENTIFICATIONANDSCREENINGOFPOTENTIALSOLUTIONS
4.1 EvaluationCriteria
Table2:CriticalSuccessFactors
CriticalSuccessFactor
Categories
StrategicFitandbusiness
needs
Potentialvalueformoney
Suppliercapacityand
capability
Potentialaffordability
Potentialachievability
BroadDescription
Howwelltheoption:
• meetsagreeduponinvestment
objectives,therelatedbusiness
needsandservicerequirements
• Isalignedwiththeorganisation,
providessynergyandsupportsother
strategies,programmesandprojects.
Howwelltheoptionoptimisesvaluefor
money(i.e.theoptimalmixofpotential
benefits,costsandrisks).
Howwelltheoption:
• matchestheabilityofpotential
supplierstodelivertherequired
services
• islikelytoresultinasustainable
arrangementthatoptimisesvaluefor
money.
Howwelltheoption:
• Meetsthesourcingpolicyofthe
organisationandlikelyavailabilityof
funding
• Matchesotherfundingconstraints
Howwelltheoptionislikelytobe
delivered,given:
• Inviewoftheorganisation’sabilityto
assimilate,adapt,andrespondtothe
requiredlevelofchange
CriticalSuccessFactorsSpecificto
YourProposal
-Upholdslegalrequirements
-Achievesthehigh-levelstrategic
aimsoftheproject(deliveryof
effectiveandefficientservices,
reducethesizeofGovernmentand
improvecommunitysafety)
Thereiscapacity/interestinthe
localmarkettodeliverchange.
-Deliverefficienciesthatare
affordabletoimplement
Achievablewithin3years.
12
•
Howwellitmatchesthelevelof
availableskillsarequiredfor
successfuldelivery.
4.2 LongListofOptions
Stakeholdershaveidentifiedthefollowinglonglistofpotentialoptionsasfollows:
Table3a:OptionDescription
OptionNumberandName
Option1:Donothing
Description
Maintaincurrentoperationswithnochange.
Option2:Improvecurrentprocesses,
reduceduplicationsandrationalize
serviceprovision.
Option3:ReintegrationofCAYSinto
theDCFS
Option4:IntegrationofCAYS
servicesintotheDCS
Option5:DevolutionofCAYS
servicesbetweentheDCFS(care
orders)andtheDCS(youth
rehabilitationorders)
Option6:Privatizationofservices
CAYSwillremainasaGovernment-OwnedCompanyandworkwillbe
donetoenhancecurrentprocessesandsystems.
Option7:IntegrateCAYSservices
withNationalDrugCouncil(NDC)
Option8:Transferofyouth
rehabilitationservices(childrenon
YouthRehabilitationOrders)toHM
PrisonServices
Option9:DevolutionofCAYS
servicesbetweentheDCFS(care
orders)andHMPrisonServices
(youthrehabilitationorders)
Thisisahistoricarrangementandthereforepotentialsynergieswith
servicesprovideddirectlythroughDCFSmayexist.
TherearepotentialsynergieswithservicesprovideddirectlybyDCS.
TransferthemanagementandoperationoftheFBCHforchildrenon
CareOrderstotheDCFS.Transferthemanagementandoperationof
theBBHforchildrenonyouthrehabilitationorderstotheDCS.
Privatizationofresidentialrehabilitativeandcaringhomeservicesfor
children.
Giventheirlegalobligationstoestablishandoperatetreatmentcenters.
Transferofresponsibilityforthemanagementofchildrenonyouth
rehabilitationordersandoperationoftheBBHtotheMinistryofHome
Affairs(HMPrisonServices).
Transferofresponsibilityforthemanagementofchildrenonyouth
rehabilitationordersandtheoperationoftheBBHtotheMinistryof
HomeAffairs(HMPrisonServices).Transferthemanagementand
operationoftheFBCHforchildrenonCareOrderstotheDCFS.
4.3 ScreeningofOptions
ThelonglistofoptionsisappraisedagainsttheidentifiedCSFs.
• AGreenassessmentindicatesfullymeets
• AYellowassessmentindicatespartlymeets;and
• ARedassessmentindicatesdoesnotmeet
13
Table4:ScreeningofOptions
Option
Option1:Do
nothing
Option2:Improve
currentprocesses,
reduce
duplicationsand
rationalizeservice
provision.
Option3:
Reintegrationof
CAYSintotheDCFS
Option4:
IntegrationofCAYS
servicesintothe
DCS
StrategicFitand
businessneeds
-Doesnotresolvethe
duplicationsin
responsibilities
-Notdeliver
improvementsincare
planning
-Misalignmentwith
mandatecontinues
-Upholdslegal
requirements
-Realises
improvementsincare
planning,harnesses
synergiesandreduces
duplications
-Doesnotmeetthe
high-levelpriorityof
reducingthesizeof
Government
-Conflictofinterestfor
DCFStoregister,
operateandinspect
residentialhomesfor
children
-Somepartial
alignmentofmandate
-Reductioninthe
numberof
Governmentagencies.
Suppliercapacity
andcapability
Nosignificant
change.
Potential
affordability
Nosignificant
change.
Potential
achievability
Achievablewithin
threeyears.
-Thereis
capacity/interest
forthisoptiontobe
explored.
-Changeis
sustainable.
-Efficiencyis
achievableasthe
BoardofDirectorsis
abletoobtain
donationsfrom
privatedonorsto
enhanceservices
Achievablewithin
threeyears.
-Capacity/interest
notcurrently
available.
-Efficiencysavings
achievableand
affordableto
implement.
However,theability
toattractprivate
donationsmaybe
impacted.
-Alignmentof
mandateduetothe
provisionof
therapeutictreatment
servicesandfacilities.
-Improvequalityand
deliveryofservices
withclinicaloversight.
-Thereis
capacity/interest
forthisoptiontobe
explored.
-Changeis
sustainable.
Efficiencies
achievable(potential
toamalgamatestaff
roles-admin)and
affordableto
implement.
However,theability
toattractprivate
-Likelytoaffectthe
timescaleare
necessarychanges
totheChildrenLaw
(2012Revision)to
removetheDCFS
asregistrarand
inspectorof
facilitiesand
removalofthe
“secure
accommodation”
classificationof
PhoenixHouse
-Requiretimeto
identifyanother
agencytocarryout
thesefunctions.
Achievablewithin
threeyears.
14
-Meetslegal
requirements(i.e
separationof
registering/inspecting
offacilitiesbyDCFS)
-Allservicesin-house
thereforepotentialto
improveworking
relationshipsexists.
-Duplicationscontinue
toexistwith
education.
Option5:
-Conflictofinterest
DevolutionofCAYS forDCFStoregister,
servicesbetween
operateandinspect
theDCFS(care
FBCH.
orders)andthe
-Potentialtoimprove
DCS(youth
qualityanddeliveryof
rehabilitation
services.
orders)
-Potentialtoimprove
coordinationof
services.
-Alignmentof
mandates.
-Reductioninthe
numberof
Governmentagencies.
Option6:
Privatizationof
services
Option7:Integrate
CAYSserviceswith
NationalDrug
Council(NDC)
-Meetslegal
requirements(i.e
separationof
registration/inspection
offacilitiesbyDCFS).
-Potentialreductionin
Governmentsize.
-LossofMinistry
oversightmay
negativelyimpact
qualityofservice
delivery.
-Somewhatableto
meetlegal
requirementsto
establishandoperate
treatmentfacilities
(i.e.limitedtodrug
treatmentservices),
donationsmaybe
impacted.
-Wouldrequire
considerable
improvedcrossagencyapproach.
-Thereispotential
capacitytodevolve
servicesbetween
twoagencies
howeverthereisno
sustainableinterest
todoso.
Wouldrequire
additionalresearch
toascertainmarket
readiness.
-Wouldrequire
additionalresearch
toascertainmarket
readiness.
-Limitedcapacityas
thiswouldrequire
significant
-Efficiencies
achievableand
affordableto
implement.
-theabilitytoattract
privatedonations
maybeimpacted
Likelytoaffectthe
timescaleare
necessarychanges
totheChildrenLaw
(2012Revision)to
removetheDCFS
asregistrarand
inspectorof
facilitiesand
removalofthe
“secure
accommodation”
classificationof
PhoenixHouse
-Requiretimeto
identifyanother
agencytocarryout
thesefunctions.
-Requireadditional
-Verychallenging
researchtoascertain withintimescale
efficiencyand
duetotheneedto
affordability.
locatesupplierto
-theabilitytoattract delivervaluefor
donationsmaybe
moneyservice.
impacted
-Capacity/interest
currentlyunknown.
-Requireadditional
researchtoascertain
efficiencyand
affordability.
-Verychallenging
withintimescale
duetotheneedfor
legislativechanges
andcapacity
building.
15
-Unlikelytoimprove
servicesduetothe
lackofexpertiseinthe
areaofyouth
rehabilitationandcare
andprotection
services.
Option8:Transfer -Noreductioninthe
ofyouth
numberofagencies
rehabilitation
withinGovernment.
services(children
-Alignmentofthe
onYouth
juvenilejustice
Rehabilitation
serviceswiththe
Orders)toHM
criminaljusticesystem
PrisonServices
likelytoimprove
services(i.e.HM
PrisonServices,
ProbationOfficers).
-Meetslegal
requirements:
a.youthconvictedof
seriousgrievous
crimesmustbe
sentencedto
imprisonment
b.BBHclassifiedas
DetentionFacility.
-Potentialnegative
impactonchildren
changingfroma
therapeutictreatment
modeltoamore
punitiveone.
Option9:
-Likelytoreducethe
DevolutionofCAYS numberofagencies
servicesbetween
withinGovernment.
theDCFS(care
-Legalconflictfor
orders)andHM
DCFStoregister,
PrisonServices
manageandinspect
(youth
residentialhomesfor
rehabilitation
children.
orders)
-Alignmentofthe
juvenilejustice
serviceswiththe
criminaljusticesystem
(HMPrisonService/
ProbationOfficers)
likelytoimprove
services.
restructuringtothe
organisations
mandateand
operations.
-Limitedcapacity
forHMPdueto
staffshortagesand
extensivespecialist
trainingrequired.
-Theremaybea
lackof
interest/reluctance
to“mix”adultswith
childrenonthe
samesite.
-Likelytorequire
additional
investmenttrain
CAYSstaffin
correctional
approachand
enhancesecurityat
theBBHsite(CCTV,
parameterfencing,
etc).
-theabilitytoattract
privatedonations
maybeimpacted.
-Likelytobe
challengingwithin
timescalegiventhe
resource
implications(e.g.
removalofthe
“secure
accommodation”
classificationof
PhoenixHouse).
-Limitedcapacity
forHMPdueto
staffshortagesand
extensivespecialist
trainingrequired.
-Theremaybea
lackof
interest/reluctance
to“mix”adultswith
childrenonthe
samesite.
-Capacity/interest
notcurrently
availablewithin
DCFS.
-MinistryofHome
Affairslikelyto
requireadditional
investmentinorder
totrainCAYSstaffin
correctional
approachand
enhancesecurityat
theBBHsite(CCTV,
parameterfencing,
etc).
-theabilitytoattract
privatedonations
maybeimpacted.
-Likelytoaffectthe
timescaleare
necessarychanges
totheChildrenLaw
(2012Revision)to
removetheDCFS
asregistrarand
inspectorof
facilitiesand
removalofthe
“secure
accommodation”
classificationof
PhoenixHouse
-Requiretimeto
identifyanother
16
-Meetslegal
requirements:
a.youthconvictedof
seriousgrievous
crimesmustbe
sentencedto
imprisonment
b.BBHclassifiedas
DetentionFacility.
c.Careandprotection
childrenwillcontinue
tobethe
responsibilityofthe
DCFS.
agencytocarryout
thesefunctions.
Table5:OptionFindings
WhiletheProjectDefinitionDocument(PDD)referencedtheE&Yrecommendationofbringing
CAYSbackintoDCFS,duringthestrategicassessmentprocessitbecameevidentthatthiswas
not a viable option. One of the major critical success factors for the project was that the
recommendation would have to uphold legal requirements. However, if this merger was to
occuritwouldmeanthattheDCFSwouldregister,operateandinspecttheresidentialfacilities
which pose a challenge to objective and independent oversight. Additionally, this may mean
that another agency would have to assume the registration and inspection of facilities and
wouldrequireamendmentstotheChildrenLaw(2012Revision)which,inturn,wouldimpact
thetimescaleidentifiedbyBusinessCaseWriters.
Seefurtherdetailsforexclusionsbelow:
Options
Option1:DoNothing
Option2:Improvecurrent
processes,reduceduplications
andrationalizeserviceprovision.
OverallAssessment
Retainedasbaseline
Viable
Option3:ReintegrationofCAYSinto Discounted
theDCFS
Rationale(reasonsforexclusion)
Maintaining current arrangements while
enhancing services would mean that legal
requirementsupheldandthereisalsopotential
to significantly improve the care planning
process. With negotiations and commitment
between Ministries, the ability to reduce
duplications in resources and service provision
exists.
TheChildrenLaw(2012Revision)requiresDCFS
to register and inspect Children’s Homes.
Hence, if the services of CAYS were to be
reintegrated, the DCFS would be registering,
operating and inspecting residential homes for
childrenwhichisaconflictandhasimplications
for independent quality assurance. This will
17
Option4:IntegrationofCAYS
servicesintotheDCS
Viable
Option5:DevolutionofCAYS
servicesbetweentheDCFS(care
orders)andtheDCS(youth
rehabilitationorders)
Discounted
Option6:Privatizationofservices
Discounted
Option7:IntegrateCAYSwith
NationalDrugCouncil(NDC)
Discounted
Option8:Transferofyouth
rehabilitationservices(childrenon
YouthRehabilitationOrders)to
MinistryofHomeAffairs
Discounted
Option9:DevolutionofCAYS
Discounted
require changes to the Children Law (2012
Revision), therefore, to remove the DCFS as
registrarandinspectoroffacilitieswhichislikely
to affect the timescale. Time will also be
requiredtoidentifyanotheragencytocarryout
thesefunctions.
Since the DCS already provides therapeutic
treatment services and operates facilities, the
mandatesoftheagenciesaresomewhataligned
- synergies include the provision of
individual/family/group counselling. This also
means that the integration is achievable within
the given timeline because of the
complimentary nature of the services. In
addition,withgreaterclinicaloversight,thereis
likely to be improvements in the quality and
delivery of services. Work across Ministries
would have to occur in order to address the
issueofduplicationwithEducators.
TheChildrenLaw(2012Revision)requiresDCFS
to register and inspect Children’s Homes.
Hence, if the services of CAYS were to be
reintegrated, the DCFS would be registering,
operating and inspecting residential homes for
childrenwhichisaconflictandhasimplications
for independent quality assurance. This will
require changes to the Children Law (2012
Revision), therefore, to remove the DCFS as
registrarandinspectoroffacilitieswhichislikely
to affect the timescale. Time will also be
requiredtoidentifyanotheragencytocarryout
thesefunctions.
There is a need to conduct more extensive
research to ascertain the potential efficiency
savings and affordability, as well as to
determine the current interest or capacity to
privatize.
This will require additional research to
determinefeasibility.Thereislikelytobeaneed
for capacity building which will require
additionalresources(funding,training,etc).
The timescale and the necessary additional
investmentareprohibitivefactorsinadditionto
the likelihood that this will not reduce the
number of Government agencies, but rather
streamline services according to mandates.
CAYSwillcontinuetooperatecaringhomesfor
childreninneedofcareandprotection.
The timescale and the necessary additional
18
servicesbetweentheDCFS(care
orders)andHMPrisonServices
(youthrehabilitationorders)
investmentareprohibitivefactorsinadditionto
the likelihood that this will not reduce the
number of Government agencies, but rather
streamline services according to mandates. In
addition, this will require changes to the
Children Law (2012 Revision) to remove the
DCFS as registrar and inspector of facilities
whichislikelytoaffectthetimescale.Timewill
also be required to identify another agency to
carryoutthesefunctions.
4.4 Short-ListedOptions
Onthebasisofthisanalysis,therecommendedshort-listforfurther,moredetailedassessment
intheOutlineBusinessCaseisasfollows:
•
•
•
Option1:DoNothing(retainedasabaselinecomparator)
Option2:Improvecurrentprocesses,reduceduplicationsandrationaliseserviceprovision.
Option3:IntegrationofCAYSservicesintotheDCS
ItisimportanttonotethatsinceCAYSisaGovernment-ownedCompanyithasthestructural
flexibilitytoreceivedonationsfromtheprivatesectortoassistwithitsongoingoperations.For
example, with the donations collected over the past year, CAYS was able to expand its FBCH
facilities without any additional Government funding. With option 3, however, their ability to
solicitdonationsmaybelimited.
Table6:Estimatedcostsofshort-listedOptions
Option
(allfigures$kyd)
CapitalCosts
Operationalcosts
Revenue
(Govt.
grant/allocations,
donations)
Surplus
Option1:Do
Nothing*
Option3:IntegrationofCAYS
servicesintotheDCS
$80,000
(facility
repairs)
$2,160,229
CurrentDCS
Option2:Improve
currentprocesses,
reduce
duplicationsand
rationaliseservice
provision
MergerYear1
$2,100,000
$3,225,092
**$110,000
***$5,475,932.52
$2,264,500
$3,225,092
****$5,690,203.52
$3,060,229
$104,271
$0
$0
$0
$0
$3,060,229
19
NOTES:
*CAYSFoundation30June2015annualFinancialStatements
**IncludesDCSofficerenovationsandCAYSfacilityrepairs
***Includes$90,611.52forHR/Finance/AdminManager
****IncludescurrentrevenueforDCSandCAYS,capitalcosts($110,000)andtheoperationalcosts($90,611.52)
ThefollowingassumptionsaremadeifCAYSweretomergeitsserviceswithDCS:
1. WiththeincreaseinDCS’budget,theexistingfinanceandadministrativecapacityofthe
DCS would have to strengthen, hence the need of an additional Finance/Human
Resource/AdministrativeManagerpostinthefirstyear.
2. Additional funding would be required to conduct small office renovations for the new
Finance/HumanResource/AdministrativeManager.
3. TheDCSCaymanBracofficewillnotbeaffectedbythisStrategicAssessment.
4. AllCAYSstaffwouldbeimpactedifoption3isdeemedtobethepreferredoption.The
Ministry,DCSandtheBoardofDirectorswouldworkcollaborativelyinaccordancewith
guidelinesandpoliciesofthePortfolioofCivilServicetoensurethatemployeebenefits,
compensationsetc.aretakenintoconsiderationwiththemerger.
4.5 StakeholderManagement
Thekeystakeholdersthathaveaninterestintheexpectedoutcomesorcaninfluencethe
investmentproposalhavebeenidentifiedasindicatedinthetablebelow:
Table7:KeyStakeholders
Stakeholder
Internal
BoardofDirectors(Management)
CAYSStaff
DCSManagement
DCSStaff
CAYSresidents&families
External
DCFS
ImpactedbythechangesasthestructureofCAYSwouldbe
dismantled
Impactedbythechanges-Staffwillhavetoassistwith
implementingthechangesandcarryingthemout
Impactedbythechangesandwillleadtheimplementationof
changes
Impactedbythechangesastheagencywillgrow
WillbeimpactedbyanychangesmadetoCAYS
Impactedbychangesastheyaretheusersoftheservicesandwill
needtodevelopaworkingrelationship
Impactedbychangesandwillhaveoversightofimplementation.
AlsoresponsibleforworkingwithMinistryresponsibleforEducation
inordertoaddresstheduplication.
Ministry
Interest
20
ItwascriticalfortheBusinessWriterstohaveinputfromthestakeholdersthroughoutthelife
oftheprojectinordertogainbuy-infortheprocessandoutcomesoftheassessment.
AtthecommencementoftheProject,theBusinessWriterscorrespondedwiththeDCFS,DCS
andCAYSinordertoexplainthebackgroundandpurposeofProjectFuture,aswellastheaim
ofthestrategicassessment.
Initially,stakeholderswererequestedtoproviderelevantstatisticsaswellashowtheirservices
currentlyinterfaced.Inordertogainadeeperinsight,theBusinessWritersthenintervieweda
member of Senior Management from each agency. Information-gathering efforts continued
informallyviateleconferencingthroughoutthelifeoftheproject.
Oncethelong-listofoptionswereevaluated,theBusinessWritersconductedfurtherinterviews
withtheCAYSandDCS,thetwoagenciesdirectlyimpacted,toreviewthestrategicassessment
findings to date, discuss the viable option, obtain their feedback and gather costing
information.
The Ministry in partnership with CAYS continues to evaluate its systems with the aim of
improvingandenhancingservicedelivery.ThisisevidentwiththerecentexpansionoftheFBCH
andtheupcomingprojecttomakeBBHasecuresiteformediumtohighriskjuvenileoffenders.
Throughthestrategicassessmentprocess,ithasbeenacknowledgedthatmorefocusneedsto
beplacedonimprovingthecoordinationbetweenagenciesinordertomakecurrentprocesses
moreeffectiveandreduceduplications.Forinstance,CAYSisconcernedaboutthedeficiencies
inthesocialworksystemsandprocessesandtheircontinuedadverseimpactonDCFS’interface
withCAYS.Withfurtherexplorationthisiswhatoption2islikelytoaddressalongwithother
interagencyissues.Inaddition,withoption2CAYSabilitytoseekprivatedonationsasasource
offunding,whichhasprovencriticaltotheirservicesthusfar,ismaintained.
Consultation with CAYS indicates that they support option 3. CAYS report that the current
structureoftheGovernment-ownedCompanyisnotidealastheBoardofDirectorshaslimited
expertiseintreatmentservices.Further,theDirectorsdespitebeingappointedbyCabinetare
volunteers and, therefore, maintaining a quorum for Board meetings is challenging. Hence,
integrating CAYS with DCS provides the opportunity to have clinical oversight thereby
enhancingthecontinuumofcareintreatmentservicesforat-riskchildrenandtheirfamilies.
Todate,DCSconsultationindicatesthatthecontinuumofservicesavailabletoyoungpersonsis
lesswell-definedthanisideal,andamergerbetweenservicesofferedthroughCAYSandthose
of the DCS could potentially strengthen that. While some services at the TCC are currently
madeavailabletoCAYSresidentsunderthepresentarrangement,theproposedmergerwould
facilitateanimprovedreferralsystemthatcouldminimisechildrenbeingremovedfromtheir
families without other interventions having been tried first. It could also allow for better
treatment planning while the young person is resident within the CAYS facilities, and a
21
smoother discharge process upon completion. It could also afford an opportunity for some
specialisedgroupstobedeliveredbyqualifiedcounsellorsfromTCCwithintheenvironmentof
theCAYShomestoaddressissuessuchassubstanceabuseandtrauma.
Additionally, the FRC offers family and parenting skills programmes, and psycho-educational
workshopsandpresentations.Thesecouldbetailor-madetomeettheneedsofCAYSresidents
andtheirfamilies,andwouldgreatlyaideinthereintegrationprocess.Skillsbuildingsessions
couldalsobeofferedtoyoungpersonswhomaymoveintoindependentlivingarrangements
oncetheytransitionfromCAYS’care.
Furthermore,ifsubstanceabuseisanissueidentifiedforparentsofchildrenwhoareplacedin
care,theabilitytotreattheentirefamilysystemcouldbegreatlyenhancedthroughamerger
ofservices,astheadult(s)canbetreatedatCaribbeanHavenResidentialCentrewhilefamily
worktakesplaceinconjunctionwiththeotheragenciesundertheDCSremit.
PART5: INVESTMENTREQUIREDTODEVELOPANOUTLINEBUSINESSCASE
5.1 Methodology
TheOutlineBusinessCase(OBC)willrequirekeysourcesofsupportfrom:
•
•
•
•
•
•
•
MinistryofCAY&SPolicyOfficers
MinistryofCAY&SFinanceUnit
DCFS
DCS
CAYS
MinistryresponsibleforEducation
StrategicReformImplementationUnit(SRIU)
The Project Definition Document has set the target date for completion as 30 April 2017.
However,thereareseveralfactorsthatwilldeterminetheabilitytomeetthistimeline.These
are:
•
•
ApprovaldatebyCabinettomoveforwardwithOBC
Availabilityofdatatoanalyse
5.2 FinancialImplications
Therearenoforeseenfinancialimplicationsforthisproject.
22
5.3 PublicServiceImplications
The development of the Strategic Assessment has highlighted the limited expertise and
experiencetheMinistryhasforthecompletionoftheOBC.Hence,theMinistrywillrelyonthe
expertguidanceandconsultationwithkeystakeholdersandSRIUinordertocompletetheOBC
in a timely manner. Additionally, the lack of readily available data to inform the process and
explorefurtheroptionsislimited.
However, the Ministry will be liaising with relevant stakeholders, namely DCFS and CAYS to
ensure that these agencies commence collecting data to be in a position to monitor the
effectivenessofidentifiedoptions.
5.4 LegalImplications
TheMinistrywillrequirefurtherlegaladvicetodetermineifthereareanylegalimplicationsas
aresultofthedevelopmentoftheOBC.
23