Purpose
Oranga Tamariki is developing a new operating model, which includes new functions over the long-held functions of care and protection, and youth justice. The new functions include transition support out of care, intensive home intervention for families/whānau, and a new early intervention service. Alongside the new operating model, Oranga Tamariki has several contracts with Non-Government Organisations (NGOs) who provide a range of services in the
early intervention space, spanning prevention to targeted support. These contracts are funded with an annual $177 million budget and have a legacy going back through a number of government agencies.
The top five contracted programmes by budget (in the 2019/20 financial year) are:
- Family Start, $50.7 million p.a., with an additional 7.5% increase for 2020/21
- Services in Schools (Social Workers in Schools, etc), $28.3 million p.a.
- Medium/high intensity wraparound family support services, $25.7 million p.a.
- Children’s Health Camps, $15.2 million p.a.
- Low to medium intensity family support services, $8.5 million p.a.
Between 2017 and 2019, the Oranga Tamariki Evidence Centre conducted two evaluations (Family Start and the Children’s Teams implementation in Rotorua, Horowhenua/Ōtaki and Canterbury), and two research projects (Social Workers in Schools and Strengthening Families). The Children’s Team is an internal stand-alone operation or programme that is not contracted to an NGO. Strengthening Families has a small budget of $3.5 million p.a. but has a significant role in early intervention. The Family Start evaluation is ongoing with a second phase currently underway.
These research and evaluation projects resulted in ten publications in late 2019 and early 2020. It was noticed that there were some common themes and messages that emerged out of the reports, which could inform the Oranga Tamariki Early Intervention new operating model, even when each project had quite different study designs and research questions. As a result, this synthesis was commissioned.
Methodology
The synthesis and thematic analysis were conducted at two levels:
- Level One reports: Eight of the ten published reports on the four programmes were more deeply thematically analysed for similarities, differences, themes, and gaps. Two literature reviews were excluded.
- Level Two reports: These reports were reviewed for background information and to provide additional contextual information. They included Ministry of Social Development research and evaluation reports (previous to Oranga Tamariki), Whānau Ora publications, and two draft Oranga Tamariki Evidence Centre reports on early intervention.
In terms of analysing the texts, a pragmatic approach was taken to recognise the value of both qualitative and quantitative data, methods, and designs. The analysis used a social work child and family/whānau well-being lens and ecological systems thinking (Bronfenbrenner, 1979).
Key Results
The following five key themes emerged from the analysis conducted:
1. Programmes have their own approaches but similar purposes
There are a plethora of early intervention initiatives in New Zealand. These four stand-alone programmes target 'vulnerable children' whose families/whānau are willing to accept programme requirements. To varying degrees they focus on providing support to disadvantaged people, reducing the likelihood of harm and/or improving wellbeing.
2. There are commonalities in programme design across the interventions
There are more similarities than differences across programmes. All four are voluntary and based around a professional role that is almost always undertaken by an NGO employee. Programmes are relationship and strengths-based and are used for Māori and non-Māori children and families/whānau alike.
3. The programmes would benefit from a supporting, common infrastructure
All four programmes operate their own programme infrastructure. Local governance arrangements, where required, are generally not strong. Professional development was found to be patchy, and information management systems were viewed by many as difficult to use and of little benefit.
4. There are some common challenges in delivering these programmes
Current salary levels were reported to be having an impact on recruitment and retention, as was increasing case complexity and some families/whānau needing more than these programmes were designed to provide. Any interruptions and/or delays in service delivery also add pressure.
5. Families/Whānau value these programmes and experience good outcomes
The programmes, and in particular the people who worked in them, were mostly highly valued by participating families/whānau and workers were often able to effect significant positive changes in clients' lives. However none of these reports examined longer-term outcomes.