Outcome Based Accountability
Guidance
V9 – February 2014
OUTCOME BASED PLANNING
Guide to Population and Performance
Accountability
Version 9
Introduction
Page 2
Outcome Planning Process
 Shared Outcomes
 Outcome indicators
 Sponsors
 Task and finish groups
 Resolving problems / issues
 Reporting Progress
Page 3
Page 6
Page 7
Page 8
Page 12
OBA Guidance
Population Accountability
Outcome Indicator report cards
Page 13
Page 14
Policy Impact Assessment
Performance Accountability

Performance measures

Report cards
Page 16
Where can we obtain help?
Page 18
Appendix 1 – Population Accountability report card template
Page 19
Appendix 2 – Performance Measures framework and
Performance Accountability report card template
Page 20
Appendix 3 – Outcome planning working document
example/template
Page 22
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“The Results-Based Accountability™ concepts utilized in this document are derived from the
book Trying Hard is Not Good Enough by Mark Friedman.”
Introduction
The world is an increasingly complex place and few organisations and individuals
are capable of achieving everything that they would like to on their own, no matter
how hard they try. Many public services are finding that this means that there are
few areas in which they work that could not be improved by involving others in some
way.
The Torfaen Local Service Board believes that by supporting organisations to work
together, services developed and delivered to the public in a more organised way
based on achieving outcomes for people will improve the life of Torfaen citizens. It
wishes to put in place a way of working that makes sense of the complex world and
complex mix of public services. The development of a Public Service Framework is
intended to bring organisations and partnerships together to work on shared
outcomes across the partnerships. The framework places an emphasis on
understanding the Torfaen story and taking outcome focussed action based on what
is most likely to work in Torfaen. The framework is intended to lead the way in
embracing opportunities for innovation, effectiveness and efficiency so that planning,
funding, procurement, delivery, performance monitoring, and review can be done
collectively
The Torfaen Public Service Framework includes:

Joining up Strategy/Plan production –
Establish one overall needs
assessment and a coordinated consultation process to inform Torfaen public
service delivery.

Shared outcomes – An agreed set of shared outcomes for public services
across Torfaen so partnerships and partner organisations can work together to
achieve the outcomes.

Planning activity and Commissioning – Action planning to take place on the
basis of the shared outcomes. The relevant partner organisations work together
to plan the work required to achieve the outcome. Also, making sure that the
approach to commissioning and procurement of activity and services is based on
achieving specific outcomes.

Monitoring success (performance management) – A structure put in place for
measuring success for all the shared outcomes and for establishing performance
measures for services or projects. The structure will help answer the questions
“how have lives changed,” and “what is the effort/impact associated with
activities?” This will make sure that all partners have a similar way of monitoring
performance and help provide a basis for accountability and resource allocation.

Research – A research network for Torfaen to make sure that there is a rational
collection, and sharing, and analysis of the data that is required for the shared
outcomes and outcome planning and partner organisations.
2

Consultation & Engagement –
Develop an engagement framework,
incorporating a database, consultation diary and a network of consultation
practitioners to reduce duplication and to share consultation (including the
results).

Partnership administration – A team has been established to support
partnership administration and the implementation of the public service
framework.

Workforce development and planning – Joint workforce development activity
across partnerships and organisations.
We understand that individual services are likely to have statutory and other
organisational requirements to deliver their core business and outcomes. However,
where partnership working is required then these outcome planning guidelines
should be used.
There is a number of supporting partnership guidance documents including;

Outcome Based Planning (which includes performance monitoring)

Information Strategy

Engagement Framework

Policy Impact Assessments
This document informs people of the outcome planning process in place for
the Torfaen Local Service Board and provides some guidance for those
carrying out outcome planning using Outcome Based Accountability (OBA).
Outcome Planning Process for the Torfaen Local Service Board
The local service board will be responsible for establishing an outcome planning
process and monitoring the progress made. The overall process will be:
1. Agree shared outcomes for public services in Torfaen
2. Select a range of outcome indicators to use as a basis for outcome planning
3. Sponsors to be nominated to be responsible for the outcome planning process
4. Sponsors establish the process to carry out outcome planning process using
outcome based accountability and establish a report card for each outcome
indicator
5. Any issues or problems arising to be reported to the Local Service Board Tactical
Group if it cannot be resolved by sponsor
6. Progress made to be reported regularly to the local service board
1. Shared Outcomes
There are seven shared outcomes for public services in Torfaen – the Torfaen Local
Service Board has agreed that these form the basis of Torfaen Together which is the
single integrated plan for the Torfaen area.
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1. Torfaen has a healthy population with a good quality of life
2. People in Torfaen are safe
3. People in Torfaen are educated for life
4. People in Torfaen enjoy a prosperous economy
5. People in Torfaen live in quality affordable homes
6. People in Torfaen live in clean, green, sustainable communities
7. Frail people in Torfaen are happily independent
In addition to the 7 shared outcomes, there are three principles which should be
applied when carrying out the outcome planning process. These are:
Citizenship, democracy and participation – the people of Torfaen are involved in
the planning process, informing us of their experiences and involvement in the
decision making process. Similarly, people of Torfaen have the opportunity to
contribute to work towards improving outcomes.
Reducing inequality – Groups experiencing inequality in the services they receive
will be identified, the nature of the inequality understood and action taken to reduce
this inequality.
Sustainability – When taking action, we consider the potential social, economic,
environmental and health implications of these actions and where possible reduce
any negative impacts.
2. Outcome Indicators
In bringing the partnerships together and therefore their respective plans and
strategies, means there are a large number of outcome indicators; many of these
relate to core business of a single organisation or service. Therefore the local
service board will focus on a small number of outcome indicators that clearly require
the involvement of a range of organisations and teams to be able to make a
difference to the people of Torfaen. The outcome indicators were selected so that
the activity required to improve them will also lead to wider improvements in quality
of life. These are called outcome indicators because by working on them, we know
that we will also be improving other outcomes as well.
The outcome indicators were agreed by the local service board following
engagement with representatives from all the partner organisations. However, there
will be the opportunity for the local service board to review the outcome indicators
and make changes if necessary, to make sure that the right ones are being used to
help us focus on the outcomes.
The outcome indicators for the local service board are:
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Shared Outcome
Torfaen has a
healthy population
with a good quality
of life
Sponsor: Jane
Layzell for 1-6
1.
2.
3.
4.
5.
6.
Outcome Indicators
% live births with a low birth weight
Cancer incidence rate
% of population with Limiting Long Term Illness
% of population who are obese
Gap in life expectancy between the most and least
deprived
% of children reaching or exceeding their development
milestones
7. # of all crime incidents
8. # of anti-social behaviour (ASB) incidents
People in Torfaen
9. # of domestic abuse incidents
10. # of violent crime incidents
are safe
11. Drug misuse incidence rate (per 100,000 population)
Sponsor: Michelle 12. Alcohol misuse incidence rate (per 100,000 population)
13. # of hate crime incidents
Booth for 7-15
14. # of children on the Child Protection Register
15. # of first time entrants into the criminal justice system
(adults and youth)
16. % of Key Stage 4 pupils achieving Level 2 Threshold
People in Torfaen
(EWM)
are educated for life
17. % of attendance – Primary and secondary
18. % of school days lost to exclusions – Primary and
Sponsors: Mark
secondary
Provis for 16-18 and
19.
% Year 11 school leavers who are not in employment,
David Congreve for
education or training
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People in Torfaen
enjoy a prosperous
economy
20. # in employment
21. # of active enterprises
22. % of population receiving income related benefits
23. % of children in poverty
Sponsors: Christina
Harrhy for 20-21 is
David Congreve2223
People in Torfaen
live in quality
affordable homes
Sponsor: Mark
Gardner & Duncan
Forbes for 24-27
24. # of people prevented from becoming homeless
25. # of new affordable homes made available
26. % of social housing that meet Welsh Housing Quality
Standard
27. Average SAP rating of private sector housing
5
Shared Outcome
People in Torfaen
live in clean, green,
sustainable
communities
Sponsors: David
Congreve for 28-29
and Christina
Harrhy for 30-32
Outcome Indicators
28. % of energy generated from renewable sources.
29. Tonnes of CO2 per capita
30. % of waste recycled/composted/reused
31. % of reported fly tipping incidents cleared within 5
working days
32. Green space in Torfaen under positive biodiversity
management
33. Rate of older people (aged 65 or over) supported in the
community per 1,000 population as at 31 March.
34. Number of patients aged >75 in a community hospital
bed who stay for longer than 28 days.
35. The % of people who attended the falls service that did
Sponsor: Sue Evans
not experience a repeat fall within the 6 month review
for33-36
period.
36. Number of people in social isolation (data development).
Frail people in
Torfaen are happily
independent
3. Sponsorship
In nominating a sponsor for each outcome indicator, this ensures that someone on
the local service board takes the lead in receiving relevant data and analysis and has
the responsibility for making sure the outcome planning is carried out and the activity
to improve the outcome is undertaken. The sponsors may use whichever
mechanisms they feel necessary to carry out the outcome planning and this may
include convening task and finish groups to carry out the outcome planning or using
existing groups/forums.
4. Task and finish groups
These can be led by any nominated officer across the partnership organisations –
whoever the sponsor feels is most relevant to the work that needs to be carried out.
Task and finish groups will be formed to tackle issues which require several
organisations or teams to contribute to improve the outcome. There will be wide
involvement by people who can make a positive contribution to planning and
implementing the activities that will make the difference. The nominated task and
finish lead will be responsible for:

Convening membership and meetings

Ensuring the group works together and carries out the required work

Using the OBA methodology and developing a Report Card

Engaging with people where appropriate or necessary, in line with the
Engagement Framework

Reporting back to the sponsor

Disbanding the group when the required work is completed
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5. Resolving issues and problems
Sometimes as a result of understanding the causes and forces at work in any given
situation, we expose issues and problems which need to be resolved. Where any
issues or problems arise, the group undertaking the outcome planning should work
together to attempt to resolve the matter themselves. If this is not possible the issue
should be taken forward to the appropriate level: firstly, to the sponsor who may be
able to find a solution, or if the matter is especially difficult, the sponsor should take
the issue to the Local Service Board Tactical Group and if still no resolution found,
as a final resort the Local Service Board Executive can be engaged.
6. Reporting
Where the data and analysis has led the sponsor to initiate a task and finish group,
or use an existing group/forum, a timescale for reporting back to the sponsor will be
agreed. The nominated task and finish lead will lead an outcome planning process
using outcome based accountability and produce a report card for the sponsor to
take back to the local service board. The task and finish group can be disbanded
when the local service board decides that the outcome has been improved to their
satisfaction.
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Outcome Based Accountability (OBA) – Guidance
The terms Outcome Based Accountability (OBA) or Results Based Accountability
(RBA) have become common across national and local policy guidance and
documents. It is a way of planning that helps to make sure that there is a process
that leads to action and we are certain will benefit the citizen. It is based on
establishing the outcome from the outset and using measures so that we know
whether a difference has been made.
Using outcome based accountability, we consider the outcome for the citizen – not
the organisation or delivery team. Performance is then measured against these
stated outcomes. We can use outcome based accountability for all our planning.
Whether it is one service area that is delivering the activities or several, outcome
based accountability involves answering a series of questions to guide you through
the process and provides a useful model for understanding performance. As public
services work more and more in partnership, either across different organisations on
a similar geographical footprint (such as Health, Police and the Local Authority for
Torfaen) or the same organisations for different geographical areas (such as Social
Care or Education across the South East Wales region of local authorities) a shared
approach to outcome planning and a common set of principles is crucial. Using
people-focused outcomes clearly connects our organisational processes to achieving
something for the people we serve.
This guide can be used by anyone in Torfaen who is involved in:

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
partnership planning and strategies
outcome action planning
operational planning
service / improvement planning
team planning
task and finish groups to tackle performance of projects/programmes
Outcome based accountability consists of two parts population accountability and
performance accountability.
Population accountability can be thought of as
partnership or strategic planning for improving the quality of life for a whole
geographical area or group(s) of people. It does not differentiate between people
that access services and those that do not. Typically it will be carried out by
partnerships of organisations. Performance accountability on the other hand focuses
on the benefits to customers or clients of services or projects or programmes. It
usually considers the customer outcome from interaction with a service and typically
includes managers, front line staff and customers in the process.
Population Accountability - about the well-being of whole populations (e.g. All
children in Torfaen are safe) and can include: Communities – Cities – Counties –
Regions – Nations.
Performance Accountability - about the well-being of clients or customers (e.g.
young people on a mentoring project) and can include: Services - Programs –
Organisations – Agencies.
It is important to understand from the outset which of the two to use.
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Population Accountability
Population accountability involves answering 7 key questions:
1.
2.
3.
4.
5.
6.
7.
What is the outcome we want for the people who live in our community?
How would this outcome be experienced if we could see it?
How can we measure these conditions (outcome indicators)?
How are we doing on the most important measures? (What is the story?)
Who are the partners that have a role to play in doing better?
What works in order to do better, including no-cost and low-cost ideas?
What do we propose to do?
Each of the questions is discussed in more detail below.
1. What are the quality of life conditions (outcomes) we want for the people
who live in our community?
The shared outcomes have been agreed by the local service board. However not all
outcome planning processes will be part of this process, the information below is
aimed at providing guidance when the outcome has not already been agreed.
An outcome is described as:



A condition of well-being for children, adults, families or communities.
An end state… how we want people to be better off as a result of our activity.
Answers the “So what?” question…
So what difference will it make if we do this?
 Positively worded (whenever possible).
 Easily understood.
It might be helpful to use the ‘formula’ __________ in ___________ are
___________ to help in deciding on the wording of the outcome although it might not
always be possible to do this. E.g.
4 year olds in Torfaen are ready for school.
Adults in Torfaen are drinking alcohol safely.
People over 65 in Torfaen are living independently.
When deciding the outcome, it can be helpful to engage with relevant stakeholders
to reach an agreement on the wording. The principle of citizenship, democracy and
participation is important and the Engagement Framework may be helpful.
2. How would this outcome be experienced if we could see it?
The answer to this question can prove helpful in a number of ways:




It can help impart a sense of direction and reasoning to why the outcome is
important in changing peoples’ lives.
It can help in the selection of outcome indicators that are relevant to the outcome
and therefore the outcome planning process.
It can help give a sense of direction to the elements of the causes and forces at
work that need to be explored so the current situation is understood.
It can give a sense of the type of activities that might be required to achieve the
outcome.
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For example, in the early stages of the frailty programme, two workshops were held
with a mixture of professionals from health, social care, and other caring
professionals and older frail people and we asked the question – if you were happily
independent what would life be like for you? As a result of this, we discovered that:
If older people in Gwent are happily independent they will…
•
•
•
•
•
•
•
•
•
•
•
•
be able to remain living in their own home with support
be safe and secure
live in good quality homes
be able to cook, wash, clean and go out
receive services in their home
financially stable to make independent choices
be listened to by people who are responsible for providing services to assist them
not be lonely
have a supportive family and good friends and neighbours keeping an eye out for
them
be going out to social activities
have planned for old age
have their health and social care problems solved quickly and considered as a
whole rather than individually.
3 How can we measure these conditions (outcome indicators)?
The local service board will focus on a small number of outcome indicators. The
outcome indicators chosen give the outcome a definition by showing what will be
concentrated on. For instance, an outcome of people being healthy with outcome
indicators associated with birth weight, alcohol intake, respiratory disease, physical
exercise and mental health clearly shows the things that are considered important in
achieving the outcome. This also helps us make sure that any action is focussed on
specific areas and avoids placing priority on activity that does not lead to an
improvement in those outcome indicators.
Therefore, the outcome indicators play a key part in our understanding of whether
there has been an improvement in the lives of people. To answer the question “how
would we recognise the outcome in measurable terms?” For example, the rate of
low-birth weight babies helps us to understand whether babies are born healthy or
not. The number of violent crimes committed against a person helps us understand
whether people are safe, or not, as do other measures such as the number of
domestic violence incidents. They are therefore important in monitoring the
performance of the local service board.
Each of the outcome indicators forms the basis of the outcome planning to be carried
out. These outcome indicators will be chosen by the single partnership. However
the guidance below on the outcome indicators may be helpful for groups wishing to
establish their own for carrying out other aspects of outcome planning.
The outcome indicators are based on whole groups of people and fairly represent
people in Torfaen as a whole. For example, using indicators that measure outcomes
for a group of people that go through a training programme and subsequently gain
employment is not necessarily representative of the total number of people that have
gained employment in Torfaen. This measure is still important for understanding the
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success of the training programme and can be used to help understand how to
improve the programme but is not likely to be an outcome indicator.
The following criteria can help in selecting indicators:
Communication Power
 Does the indicator communicate to a broad range of audiences?
 It should be common sense and compelling so that people can understand it.
Proxy Power
 Does the indicator say something of central importance about the outcome?
 Can it act as a leader or representative for other indicators?
Data Power
 Is quality data available on a timely basis?
 Is it possible to collect the data from other sources?
 Do we need to develop the data?
4 How are we doing on the most important measures? (What is the story?)
This question is often changed to: What is the story? This question is often not
straight forward to answer because any situation can be quite complex. Depending
on the nature of the current situation and the outcome indicator, we should consider
using the appropriate methods to find out:















Do any particular groups of people suffer from inequality in the outcome or in
access to services?
What are the drivers / causes that influence the outcome indicator?
What services and action is currently being undertaken that affects the outcome
indicator?
How do people/citizens experience the issue and the services provided?
Are there any particular areas/places/situations where problems occur that leads
to people not achieving improved circumstances?
What do people in the community say?
What do people involved say?
Are organisations working in the best way to help improve the outcome?
Is the critical path through the services / programmes clear?
Who is most in need?
Do we understand need?
Is there any unmet need?
Can we respond to need?
At what stage do we pick up need?
How do processes need to improve?
Inequality/Vulnerability Considerations
It is important to consider the principle of reducing inequality at this stage. We need
to identify whether there are any groups of people experiencing an inequity in the
outcome or in access to services. This could be on a geographical basis such as a
Community First area or a population with protective characteristics basis such as an
ethnic group, disability, gender, language (including Welsh) or another group of
people who may be particularly vulnerable. Screening for a policy impact
assessment may help highlight any inequities.
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Life Course Considerations
In addition to the above concerning inequality, we need to make sure we understand
whether certain age groups or periods of peoples’ life course require particular
attention. Some of the outcome indicators are clearly based on an age group e.g.
educational attainment related outcome indicators. However, many are not and with
this in mind, when carrying out the outcome planning consideration needs to be
made of whether any of the following aspects of the life course / age groups are
particularly affected and if so, what action should be taken to improve the outcome
for that particular group:
1 Prebirth
2 Pre-School Children (typically 0-3 year olds)
3 Children (typically 4-10 year olds)
4 Young People (typically 11-18 year olds)
5 Working Age Adults (typically 16 – 64 year olds)
6 Older People (typically 50 + year olds)
7 Frail People
How this stage is carried out is up to the people doing the outcome planning. It
could, for example, be carried out in a workshop (or series of workshops) involving
differing stakeholders. Please note, the age bands in brackets are for indicative
purposes only because different definitions apply in certain circumstances.
5
Who are the partners that have a role to play in doing better?
This question is aimed at identifying those people, teams, services and organisations
that can take some action to make improvements. Ideally, anyone identified at this
stage should be engaged in the outcome planning process and take part in forming
the action plan.
6
What works in order to do better, including no-cost and low-cost ideas?
This question asks what action could be taken to make a difference to the outcome
indicator and improve the outcome. There are a number of sources for drawing
together a list of potential activity. Ideas are likely to come from discussing the
‘story’/causes and forces at work and, whilst being realistic in what can be achieved,
innovative ideas should be included at this stage.
In some cases, there will be research or evidence based activity that is proven to
make a difference and where that exists, it should be included in the list. Other
sources may include people who are involved in providing services; people who
have experienced services; or live in the community. Best practice and in some
cases, the best guess by different people of what would make a difference may also
be included.
It is important to include what preventative action should be taken to improve the
outcome. In section 4 ‘how are we doing on the most important measure?’ the
causes and forces at work are discussed. This will help us understand what
preventative action can be carried out.
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This list of action can be used to help us focus resources when they become
available – e.g. funding streams etc. allowing for a list of activities which we are
certain would make a difference to be the priority for any resources that become
available.
7
What do we propose to do?
Unfortunately, there is a limit to the amount of finance, people with the skills, time
and assets that are available to carry out all the activity that could make a difference.
This means that it is unlikely that all the activities or services suggested in question 6
can be undertaken and a choice has to be made about which action to undertake.
Below are some criteria that may help in the decision making process:
Specificity - Is the idea specific enough to be implemented? Can it actually be
done? “Every one should have housing” is vague and rhetorical “Building ten new
units of low income housing” is specific and can be implemented. This is a threshold
question, because it is hard to judge an action on the other criteria if it is not specific
enough to be implemented.
Leverage - How much difference will the proposed action make on results,
indicators, and changing outcomes? This is probably the most important criteria. It
does not matter how well an idea scores on other criteria if it wont make a difference.
Investing in quality child care is a high leverage action to get children ready for
school. Handing out parenting literature at an event is not necessarily a bad idea but
its low leverage.
If a suggested action has low leverage then it may be better to save the resources
(time, people and money) and use them doing something else.
Values - Is it consistent with our personal/organisational/community values? There
are many actions that are specific and high leverage but not consistent with our
values. If you want to improve school attendance rates then exclude all trouble
makers. If you want to improve an outcome on rates of entry into foster care, then
slow down or stop investigating child abuse. These are specific and high leverage
but should not be done.
Reach - Is it feasible and affordable? Can it actually be done and when? No-cost
low-cost actions should rate higher in this case. Action that require significant new
resources may rate lower. Actions where there is a clear lead person or organisation
rate higher. Actions where everyone says it is a good idea but no one wants to do it
will rate lower.
Sustainability of the action is important and if short term funding is the initial
resource, then consideration must be given to longer term funding for capital and
revenue to ensure that projects are not short-lived and any improvements are not
lost when funding runs out. Policy impact assessments should also be carried out.
Carrying out the outcome planning process
There are many ways in which the 7 questions can be answered. In our experience,
it is advisable to bring together a group of people who are most likely to play a role in
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taking action to make a difference and in workshop or series of workshops, go
through the 7 questions.
It is likely that more than one workshop is going to be needed because quite often
the first workshop leads to the need for data/information or engagement with other
stakeholders to help answer some of the questions. (The PSSU can help facilitate
these workshops).
As part of this process, it is helpful to keep a working document which includes the
answers to the questions. Appendix 3 gives an example/template which might be
helpful.
Outcome Indicator Report Cards
The outcome planning for each outcome indicator will lead to a list of action.
However, a summary of the thinking process behind the action plan would be helpful
for a number of reasons:

to act as a reminder to all that have taken part in the outcome planning process

to help others that feel they might be able to make a contribution understand
what has been considered to date so if they have anything to add they can
become involved

to help monitor and review the success of the partnership action carried out to
make a difference
If all partners and services use this method routinely, there will be consistency which
will provide an easy way for:

The local service board to receive and monitor progress on achieving the
outcomes.

The public to understand what we are doing and how we are performing

Service providers and their staff to see how they are doing and where to make
adjustments if necessary to improve the outcomes

Managers to explain their service to senior managers, elected members and the
public
A template for a Population Accountability Report Card is in Appendix 1
Policy impact assessments
In order to test out our developing policies, plans and strategies, it is good practice to
apply impact assessments. In the case of equalities it is a statutory requirement for
all public services, whether providing activities directly or commissioning them from
another source including the private sector, a robust Equality Impact Assessment
should be carried. All partners should already have their own organisational policy
and methodology around this. Welsh language is also something that public bodies
need to consider, and those who provide services on our behalf are encouraged to
consider the implications for not providing information and services in Welsh as a
matter of course.
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Within the Council all decisions need to include a policy impact assessment process
which takes into consideration a number of issues including, finance, equalities,
sustainable development and others.
Carrying out the policy impact assessment process can help in the identification of
impacts which might otherwise not have been considered and allows for the
project/service to make any necessary changes to mitigate any potential negative
consequences.
There is separate guidance on carrying out a policy impact assessment. Please
contact the PSSU for details.
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Performance Accountability
Performance accountability is concerned with service or project improvement. It
uses the concept of a customer outcome as the basis for measurement and is based
on developing a performance measures framework for the service (or programme or
project).
Performance Measures
The use of outcome indicators only tells us how the outcome has changed, it is not
known from this how successful each service or action has been. Action usually
does have performance management built into it; however, it often focuses on
process and capacity (e.g. measuring the amount of service delivered). It is vital that
the results of any action are monitored. Outcome based accountability also provides
a useful model for understanding the performance of services, projects and activities
by asking three broad questions:

How much did we do?

How well did we do it?

Is anyone better off?
The types of measures that can be considered for each of these three questions
include:
It is not the intention for each service to include too many performance measures.
As activity will usually be delivered by organisations, we need to balance the
performance management requirements of the organisations with the need for the
performance measures which meet the above guidelines. Where services, projects
or activities are part of a funding process that is managed by the local service board,
it will be expected that there will be a set of agreed performance measures that will
be monitored as part of the accountability and evaluation process.
16
However, the intention is for the performance measures to be useful in improving the
outcome for the people that use the service, project or activity. It is therefore
suggested that the following questions be used by the service to help the
improvement process:
Q1. Who are our customers?
Q2. How can we measure if our customers are better off?
Q3. How can we measure if we are delivering services well?
Q4. How are we doing on the most important measures?
Q5. Who are the partners that have a role to play in doing better?
Q6. What works in order to do better, including no-cost and low-cost ideas?
Q7. What do we propose to do?
It is useful to monitor the performance of the services, projects and actions in the
action plan for each outcome planning process so that we can establish which
activities are making the most progress in helping to improve the current situation.
Performance Accountability Report Cards
In the same way as population accountability uses a report card to summarise the
outcome planning process, the performance accountability process can be
summarised in a report card too.
Appendix 2 has a template for a performance measures framework and a
performance accountability report card template.
17
Where can we obtain help?
Over the past two years, several outcome based workshops have been held, mainly
for specific topics. This has given many people across the partnerships a basic
introduction to and understanding of OBA.
Public Service Support Unit officers lead on this work and are happy to help in a
variety of ways: One to one conversations; advice to planning groups; facilitation of
work shop events; screening of draft report cards. Please phone or email:Tara Gardner
01495 742886
[email protected]
Mark Sharwood
01495 742157
[email protected]
In some service areas, officers have become experienced in applying outcome
based accountability and can support other officers in their service areas or local
partnerships. The PSSU will be happy to let you know of where additional support
can be gained.
18
Appendix 1 – Population Accountability Report Card Template
[please delete this
line]
Outcome: [Insert the outcome here]
Outcome Indicator: [insert the outcome
indicator here]
What would it look like if the outcome was achieved?
 A bullet point list describing the ‘real life’ differences that people would experience if the
outcome was achieved.
The Data: Insert graph of the baseline (including future trend)
The Story
The Data
 A bullet point list of an analysis of the outcome indicator data.
 Can include the analysis of other relevant data (sometimes referred to as needs assessment
data.
Causes and forces at work
 A bullet point list of the story behind the data – the reasons why the current situation is as it is.
 Are particular groups of people vulnerable?
Activity going on at the moment
 Bullet point list of the action being carried out at present.
Those involved in improving the situation
 A list of the organisations (teams) that are involved in making a difference.
What works to make a difference
 A list of the action that is known from research, good practice, best ideas etc that if carried out
would have a significant impact on the current situation.
What we are going to do:
 A list of actions that will be carried out by the partners
19
Appendix 2 – Performance Measures Framework
Defined customers/service users:
e.g. Domestic Abuse Service
e.g. Female domestic abuse victims
Purpose of service: e.g. To provide support to victims to victims of domestic abuse so
Male domestic abuse victims
that they do not suffer repeat abuse. Services include counselling, refuge provision,
information provision, signposting to other services that might be helpful, support to the victim Perpetrators of domestic abuse
Children affected by domestic abuse
while going through the criminal justice process.
Activity: e.g. 1) Take referrals from victims or partner agencies. 2) Carry out assessment using DASH 3) Provide single person contact. 4) Provide
relevant service(s) e.g. counselling, refuge. 5) Monitor progress. 6) Collect data to share with partner agencies. 7) Contact Social Care if children at
risk. 8) Refer to IDVA if appropriate.
Service:
Performance Measures


How much did we do? (Quantity)
Number of Clients/Customers Served
Number of activities (by type of activity)
Number




Skills/Knowledge
Attitudes/Opinion
Behaviour
Circumstance
How well did we do it? (Quality)
 Percentage Common Measures
e.g. client staff ratio, workload ratio, staff turnover rate, staff morale,
staff fully trained, clients seen in own language, worker safety, unit
cost.
 Percentage Activity Specific Measures
e.g. timely, clients completing activity/programme, correct and
complete, meeting standard.
Is anyone better off?
Percentage
 Skills/Knowledge
 Attitudes/Opinion
 Behaviour
 Circumstance
20
Performance Accountability Report Card Template [please delete this line]
Service:
Defined customers/service users:
e.g. Domestic Abuse Service
Purpose of service: e.g. To provide support to victims to victims of domestic abuse so
that they do not suffer repeat abuse. Services include counselling, refuge provision,
information provision, signposting to other services that might be helpful, support to the victim
while going through the criminal justice process.
e.g. Female domestic abuse victims
Male domestic abuse victims
Perpetrators of domestic abuse
Children affected by domestic abuse
How are we doing (performance measures)?
160
140
120
100
80
60
40
20
0
160
140
120
100
80
60
40
20
0
160
140
120
100
80
60
40
20
0
160
140
120
100
80
60
40
20
0
160
140
120
100
80
60
40
20
0
Graphical data showing performance to date
Story behind the data / causes and forces at work:





E.g. the number of victims presenting to the service has increased because…
It is taking longer to see victims to carry out a risk assessment because…
Numbers of repeat victimisation is reducing because of the daily conference call dealing with lower risk occurrences of abuse.
Children of victims can be affected, engagement with victims suggests school absence and behaviour problems – early counselling might
help.
Waiting list to see a counsellor is increasing.
Partners that have a role to play in doing better:

TVA Volunteer Coordinator; IDVA; adult protection team (social care).
What we propose to do to improve performance:
Action
Person responsible
Timescale
Comments
21
Appendix 3 – Outcome Planning Working Document Example/Template
Outcome: People in Torfaen are safe
Outcome Indicator: Domestic Abuse Incidents
Why the indicator is important: Domestic abuse is thought to be suffered by 1 in 4 women and 1 in
6 men and has a huge impact not only on their safety and physical and mental health but also the
lives of the whole family, in particular their children. Because of this, we believe that Domestic Abuse
plays a significant role in defining how safe people in Torfaen are.
What would it look like if domestic abuse was not being perpetrated?
 Victims and their children would feel safe and secure
 Quieter /more peaceful neighbourhood/community
 Less involvement with Social Services, Police and other agencies such as mental health and
housing services.
 Reduced social worker caseload
 Families experiencing less stress/anxiety
 Better childhood attachment to parents and wider family and friends
 Parents would be able to focus more on their children
 Victims would be more independent , less undermined, more confident and in more control of their
lives
 Better school attendance
 Children’s behaviour at home , school and within the community would improve
 Future generations would be less likely to commit abuse or be victims
 Stable family life
 Children would not be disturbed by moving home or school
The Data: Total Incidents of Domestic Abuse within Torfaen
Total Incidents
1600
1400
Year
1200
1000
2007/08
2008/09
2009/10
2010/11
2011/12
800
600
400
200
Total
Incidents
1035
1359
1487
1225
1435
0
2007/08
2008/09
2009/10
2010/11
2011/12
The Story
The Data
 There was a reduction of 250 incidents in 2010/11 which is unexplained. The overall trend is an
increase in reported incidents of domestic abuse to over 1,400 incidents a year being reported in
Torfaen.
 No data was available on the number of repeat incidences but it is noted in the MARAC and
DACC processes.
22


The data may be inaccurate because:
 People are reluctant to report incidents of domestic abuse: national research suggests
only 1 in 3 incidents are reported to the police
 Victims are likely to experience 30-37 incidents before reporting
 This is only Police data so it doesn’t include reports to other agencies. TWA for
example report about 300 incidents of domestic abuse reported to them in 2009/10 and
about 800 incidents in 2011/12. This trend does not match the police reported domestic
abuse trend.
 This data is sometimes recorded inaccurately by the police but this is not considered
significant: it is more likely to err on the side of caution rather than not report an incident
as domestic abuse
 There are a number of agencies that come across people who are victims but do not
report it or record it because it is not the presenting or primary issue for that agency,
e.g. mental health
It would be beneficial to see:
 How many TWA clients are not reporting the incidents to the police
 Figures on the number of repeat domestic abuse incidents within DACC and MARAC.
 Any geographical areas in particular where Domestic Abuse is reported
Causes and forces at work
 The purpose of domestic abuse is to establish and exert power and control over another; men
most often use it against their intimate partners, which can include current or former spouses,
girlfriends, or dating partners .
 Domestic violence is behaviour that is learned through observation and reinforcement in both the
family and society. It is not caused by genetics or illness. Domestic violence is repeated because
it works. The pattern of domestic violence allows the perpetrator to gain control of the victim
through fear and intimidation. Gaining the victim’s compliance, even temporarily, reinforces the
perpetrator’s use of these tactics of control. More importantly, however, the perpetrator is able to
reinforce their abusive behaviour because of the socially sanctioned belief that men have the right
to control women in relationships and the right to use force to ensure that control.
 Perpetrators use a wide range of coercive and abusive behaviours against their victims. Some of
the abusive behaviours used by perpetrators result in physical injuries that harm the victim both
physically and emotionally. Other techniques employed involve emotionally abusive behaviours.
While these behaviours may not result in physical injuries, they are still psychologically damaging
to the victim. Perpetrators employ different abusive behaviours at different times. Even a single
incident of physical violence may be sufficient to establish power and control over a partner; this
power and control is then reinforced and strengthened by non-physical abusive and coercive
behaviours.
 Middle class people are thought to be less likely to report incidents as they are not used to
accessing public services. Therefore the more affluent areas may have ‘hidden’ incidents.
 Private landlords are known to be an issue (3 noted at present) with younger women. This is not
domestic abuse but is violence against women and reported via DACC. The young girls are not
pressing charges but support workers have identified the issues.
 It was reported anecdotally that women were being rehoused following domestic abuse incidents
into areas where serial perpetrators were known to live. As a result they may be at additional risk
of further victimisation.
 A few serial offenders in an area could affect report statistics i.e. a few offenders could be having
multiple abusive relationships over time.
 Substance misuse: this is likely to be an excuse and not a cause for domestic abuse.
Perpetrators frequently coerce the victim to use drugs or alcohol. The victim then finds it hard to
recognise domestic abuse so therefore it is harder for them to access services. They are scared
to get help because of their substance misuse.
23












Victims often do not recognise that they are being abused e.g. ‘He only does it when he’s been
drinking’
Mental health: perpetrators may have mental health issues. Mental ill health however is not a
cause for domestic abuse. Victims in the majority of cases have mental health issues, including
depression, PTSD and anxiety. This is as a result of the abuse they experience. As with
substance misuse, mental ill health may make it difficult for victims to recognise domestic abuse
and access services.
People with learning disabilities: almost all disclose abuse (University of Glamorgan research).
Bristol research also shows that 50% of physically disabled people suffer abuse.
Armed Forces leavers /TA serving abroad – investigate whether there might be an issue in
Torfaen
Children growing up in families that suffer domestic abuse often end up having low educational
attainment because they do not regularly attend school and may have behavioural issues.
There is lack of employment for the perpetrator as well as the victims. If they are not in work then
they have more time to abuse. Victims suffer from lack of confidence , self esteem and cannot
find time away from the perpetrator.
Community understanding: some people do not want their community to know they are suffering
from domestic abuse. However, sometimes the community may also support victims.
Elderly – These are often abused by their children and grandchildren and elderly males are more
vulnerable.
Pregnant Women – women experience more abuse when they are young and pregnant and
incidents escalate quicker.
TWA are reporting an increase in working women accessing their Refuge. This is having financial
implications.
The current Welfare Reforms are likely to cause a number of issues.
Activity going on at the moment
 TWA have dedicated crisis intervention team, a children’s worker , helpline, facebook, website
giving 24hour support, Independent Sexual Violence Advocate (Survivors Trust Qualified) , 3
CAADA trained staff (to IDVA level) and 2 refuges to support female victims of domestic abuse.
 Hafan Cymry provide floating support to male and female victims of domestic abuse.
 Both TWA and Hafan Cymru provide group programmes for women experiencing domestic
abuse.
 1 Independent Domestic Abuse Advocate (TCBC) provides support to victims at high risk of
serious harm or death.
 Public services also deal with the effects of domestic abuse.
 A Task & Finish group has developed a care pathway for older victims of domestic abuse and is
delivering training to enable staff to recognise signs of abuse. Adult Protection are re[porting an
increase in domestic abuse referrals.
 Women accessing antenatal, health visiting and sexual health services are routinely asked about
domestic abuse.
 Domestic Abuse and Sexual Violence Forum brings together key partners addressing domestic
abuse issues.
 Domestic Abuse Conference Call operates on a daily basis.
 MARAC operates fortnightly.
 A domestic abuse training programme addresses training needs on 3 levels.
 The Specialist Domestic Violent Court (SDVC) programme addresses the needs of victims going
through the Criminal Justice System.
 Training to enable staff to recognise signs of Forced Marriage and FGM is being delivered and
flow charts have been developed telling staff what to do when they are dealing with disclosures.
 Service users are being consulted on what services they feel need to be provided.
24
Working well
 Multi Agency working : good relationships that have been built within the Domestic Abuse
Forum, the MARAC and the DACC process.
 DACC’s and MARAC’s are very well attended.
 Supporting People , a major funder of services in Torfaen, has been very flexible in how services
are being delivered.
 Domestic Abuse training is regarded as being good quality.
 TWA’s dedicated 24 hour response team
 There are 2 refuges in Torfaen that have 24 hour access: one refuge is for women without
children, the other one is a family refuge.
 Drop In centres – services are available in Pontypool, Fairwater (part time) and Blaenavon (part
time). Pontypool is a women only centre. Male victims can access services in Fairwater and
Blaenavon.
 All dedicated domestic abuse services are co-located in the Chrysalis Centre in Pontypool.
 Some preventative work is being undertaken: Freedom Programme, Recovery Toolkit, Parenting
programme and Return to Work programme.
 Some previous domestic abuse victims are now becoming domestic abuse service employees.
 Supporting People provide funding for support services for male victims: Hafan Cymru has 4
gender neutral units.
 There is increased awareness of domestic abuse within the POVA process. However, being able
to use the POVAS system is dependant on the consent of the victim.
 TWA are part of a regional consortium to access specialist services e.g. male mentoring scheme,
advice/support concerning perpetrator programme, BAWSO.
 TWA are reporting an increase in older women accessing their services, likely to be due to
training delivered early in 2012.
What could be improved?
 Involvement of mental health agencies in domestic abuse services and planning
 There is a poor success rate in hitting POVA criteria: in Wales they must be in need or receipt of
Community Care services.
 Refuge space for disabled people is not always suitable: there is 1 room available but it is not
always suitable if the person is elderly or very disabled.
 DACC information sharing – police give out the information but other agencies need to be able to
access the database tp provide updates on actions. .
 Multi agency management on the DACC could be improved: a case management system could
achieve this.
 Prosecution rates are thought to be low. It is suspected that part of the issue is that victims often
withdraw statements. The criminal route is not always wanted by the victim. Many victims prefer
the civil route, but this is expensive.
 Perpetrator accountability: IDAP is the only programme available to perpetrators in Torfaen and is
only accessible if the perpetrator has been prosecuted. Due to lack of funding, there is no
programme for non convicted perpetrator.
 There are no schools based preventative programmes in Torfaen for young people
 There is a lack of services for children affected by domestic abuse. School counselors mainly
deal with bereavement but if trained could provide services to children and young people affected
by domestic abuse. All secondary schools have counselors. The service is being piloted in
primary schools.
 Services rarely ask clients about domestic abuse. Knowing whether or not there are domestic
abuse issues will affect the service a victim receives or could receive.
 Kaleidoscope is running the Freedom Programme for their clients. There is a possible issue in
being able to support clients that are victims of domestic abuse.
25

Gap Analysis – 10,000 safer lives, minimum standards:
 Training is required on using risk assessment tools and more clarification is needed on
how other agencies are implementing risk assessments.
 There is no common assessment for victims across Gwent. This means that victims
often have to repeat their information.
 There is a need for a clear framework for sharing information.
 There is no specific service user group that feeds into the champion
 Due to lack of funding, there is no action plan for educating children and young people
on domestic abuse.
 There is no overarching complaints procedure for victims of domestic abuse.
 There are no occupation standards for employees/volunteers working in the domestic
abuse field.
Those involved in improving the situation
 Chief Executive and Heads of

Service

 Elected Members

 Welsh Government

 Public Services Support Unit

 Domestic Abuse Co-ordinator

 Gwent Police

 Social Care (Adult and Children

Services)

 Education




Probation Service
CPS
Health
Bron Afon
Homelessness
Supporting People
Torfaen Women’s Aid
Hafan Cymru
IDVA
Drug and Alcohol service providers
Age Concern
MIND
What works to make a difference

26
What we will do
PREVENTION AND AWARENESS
Action
Have an annual multi agency training
plan for domestic abuse:
 Continue to develop training programme
on three levels
 Make training programme more
sustainable by recruiting and training
staff in partner agencies to deliver the
training programme.
Have a joined up and published action
plan for educating children and young
people on domestic abuse:
 Secure funding to implement
recommendations from 2012 TWA
research into what is required to deliver
Healthy Relationships work in Education.
 Establish content of current Healthy
relationship programme delivered by
School Liaison officers.
Who
Responsible?
Timescale
PG DA & SV
Forum
Comments
Extensive programme is being developed
Progress to be reported via PGDA&SV minutes and
at Torfaen DAF
PG DA & SV
Forum
Torfaen DAF
Torfaen DAF
TWA
DA Coordinator and
Police
Recent TWA joint funding application with
Monmouthshire was not successful.
March 2013
27
SUPPORT FOR VICTIMS AND CHILDREN
Action
Who Responsible?
Private landlord issue: some
vulnerable victims have been
targeted by certain landlords and
have subsequently experienced
further harassment and abuse:
 Ensure partner agencies
respond quickly and
appropriately when issues are
reported.
 Monitor agencies’ responses
when issues occur.
All agencies
Don’t rehouse victims near
known high risk, serial
perpetrators:
 Police to identify high risk, serial
perpetrators, provide data on
where they live and pass
information to providers.
 Police LPU to discuss issue at
Social Landlord Forum and
report back
 Through links with MAPPA
ensure known serial perpetrators
Timescale
Comments
Torfaen DAF
Police LPU
June 2013
Probation
MAPPA
28
are not rehoused in areas where
victims are rehoused
Domestic Abuse and Substance
misuse service providers to
explore with Social Services how
victim’s fear of Social Services’
intervention can be addressed.
 Arrange multi agency meeting to SSD Safeguarding Unit June 2013
explore and discuss perceptions.
 Follow multi agency meeting with All agencies
staff shadowing staff in other
agencies.
Mental health issues: explore
routine DA questioning in mental
health settings:
 IL to discuss at ABHB DA Forum
Information from ABHB: during initial assessment
clients are routine asked about situation at home.
This should identify domestic abuse.
SUPPORT FOR VICTIMS AND CHILDREN
Action
Who Responsible?
Timescale
Learning Disabilities: address the
needs of victims with learning
and physical disabilities.
 Reconvene the Older and
DA Co-ordinator
June 2013
Comments
29
Disabled Victims of Domestic
Abuse Task & Finish group.
LGB & T victims:
 Address the needs of LGB & T
victims
Armed Forced / TA leavers:
 Establish whether or not there is
a DA issue in Torfaen with
armed forced / TA leavers.
Children affected by domestic
abuse:
 Based on research, produce a
paper outlining the needs of
children affected by domestic
abuse, services that need to be
in place and gaps in current
services.
 Review earlier finding and
include findings from WWA
research project.
Perpetrators and employment:
 Based on research, produce a
paper outlining issues re the
effects of unemployment on
DA Co-ordinator
Completed
Paper attached to minutes of DAF 19.12.12
Completed
Paper attached to minutes of DAF 19.12.12
DA Co-ordinator
Da Co-ordinator
30
perpetrators.
Older victims of domestic abuse:
 Following the publication of the
evaluation of the Swansea
‘Access to Justice’ project,
establish what, if any, actions are
required.
SUPPORT FOR VICTIMS AND CHILDREN
Action
Who Responsible?
Domestic abuse and pregnancy:
 Monitor implementation of
Antenatal Care Pathway
ABHB Domestic Abuse
Forum
Timescale
Comments
POVA referrals:
 Establish why some agencies
feel success rate in hitting POVA
referrals is low.
 Explore links between POVA and
MARAC.
Training for Counsellors:
 Explore whether there is need for
31
targeted domestic abuse training
to enable counsellors to decide
what specific type of counselling
victims might need.
Common Assessment framework:
 Establish what the development
of a common assessment
framework involves.
Risk Assessment:
 Deliver half day training DASH
Risk Assessment training
package
 Review agencies’ procedures for
reviewing risk.
DA Forum
Have a domestic abuse workplace
policy:
DA Co-ordinator
 Review current policy.
 Contact partner agencies and
other local employers and ask
whether or not they have a
workplace policy
 Establish how awareness and
implementation of workplace
policy is monitored
 Explore making training on
implementation of workplace
Training programme started February 2013
June 2013
32
policy mandatory
PERPETRATOR ACCOUNTABILITY
Action
Perpetrator accountability:
 Establish what constitutes a safe
non mandatory perpetrator
programme.
Prosecution rates:
 Establish prosecutions rates for
DA cases
Who Responsible?
Timescale
Comments
PG DA&SV Forum
July 2013
PG Task & Finish Group looking at non mandatory
perpetrators programmes
PG SDVC local
operational groups and
Management group
Data is already available
POLICY AND DEVELOPMENT
Action
Who Responsible?
Timescale
Comments
Service users input:
 Use feedback from Pan Gwent
service users’ group to feed into
action plan and local sponsor.
 Ensure views of children and
33
young people are taken into
consideration
Nominate a Domestic Abuse
Champion at a local or regional
strategic level:
 TCBC champion to make himself
known to Domestic Abuse Forum
POLICY AND DEVELOPMENT
Action
Who Responsible?
Timescale
Comments
Have an overarching multi agency
and published complaints
procedure for victims of domestic
abuse and a nominated
complaints advocate:
 Carry out audit of existing
complaints procedures in partner
agencies.
Observe a set of occupational
standards for
employees/volunteers working in
34
the domestic abuse field:
 Establish what is meant by
occupational standards
 Establish whether or not
dedicated domestic abuse
service providers meet standards
 Carry out a survey to establish
what, if anything, other agencies
provide to victims of domestic
abuse.
DA Co-ordinator
DACC Information Sharing
Protocol:
 Develop appropriate ISP for
agencies attending DACC.
September
2013
PG DACC & MARAC
Steering Group
Data collection:
 Investigate ability to collect data
re repeat victimisation
 TWA to dip sample their referrals
to establish % of their clients
who do not
report to the Police
 Map reported incidents to see if
there are geographical patterns
of reported abuse.
Performance measurement
35
framework:
 Collect data to measure
outcomes agreed in the
performance measurement
framework.
“The Results-Based Accountability™ concepts utilized in this document are derived from the book Trying Hard is Not Good Enough by Mark
Friedman.”
36