In a previous blog I mentioned that I had had the privilege of visiting Australia where I had the opportunity to meet with and discuss the challenges of delivering aged care in that vast country. Part of these conversations related to how providers navigated the challenges of remote and rural care delivery.
In many ways the challenges faced by care providers in Scotland are not dissimilar – issues of workforce recruitment and retention, transport, cost of living, depopulation and lack of whole system thinking. I’ve previously written about what some of this means for the Highlands of Scotland and argued that at the very least we need to develop specific funding streams to address these issues, but in truth it is more than additional resource which is needed. The criticality of these issues is self-evident with growing numbers of care homes closing and public intervention required to avoid further social care withdrawal.
In this piece I want to suggest that there are some practical solutions which might aid us in the short term but also that if we are serious in addressing the challenges of depopulation then we need radical new (and old) approaches to our delivery of social care and health services. What follows is an attempt to describe some aspects of this in brief and to initiate a wider conversation.
Going back to move forward.
I have long been interested in the work of Eileen Younghusband. Eileen was a pioneering British social worker, educator, and researcher whose work significantly shaped social care practices, especially through her emphasis on community-based social work and a holistic, person-centred approach to care.
The Younghusband Report (1959) was a landmark document that analysed social services provision in the UK and made recommendations for integrating social work with health and community support. Her ideas laid a foundation for modern social care practices, particularly in settings where tailored, community-oriented approaches were essential.
In many senses she was the forerunner of our modern attempts at the integration of health and social care but critically her starting point was the local community and not national systems, and her focus was on the person living in community and primary care/social care and not on secondary and acute clinical care.
Younghusband’s work was grounded in the belief that social workers should operate within communities rather than distant institutions. She promoted integrated care models that involved close collaboration between social services, healthcare, and community organisations, enabling social workers to respond more effectively to local needs and provide tailored support. It all sounds remarkably prescient but sadly much of her report and recommendations remained on the shelf and unimplemented.
Her approach did however chime with many of those behind the development of the Social Work Scotland Act of 1968 not least in its emphasis upon a holistic approach to wellbeing rooted in universalist and communitarian principles.
Younghusband argued for a holistic model that viewed individuals within the context of their families, communities, and broader social environments. This approach encouraged social workers to address not just immediate social needs but also the underlying factors impacting an individual’s well-being, such as housing, employment, mental health, and social relationships.
Critically for our context today she also focussed on the importance of preventive measures in social care, including early intervention, education, and ongoing support to help individuals maintain independence and prevent crises. She also argued for the need for flexibility around the scope of roles and activities within professional groups, being critical of role protectionism and an unwillingness to work beyond scope and registration. I would suggest her work has much to teach us today around rural and remote health and care delivery.
Alongside this philosophical UK grounding of a communitarian primary and social care model it is worth reflecting on the Australian context which I came across.
Australia is actively working to improve access to and the quality of aged care services, particularly for those in rural and remote areas and from diverse cultural backgrounds. It is doing so by utilising several distinctive programmes including:
The Multi-Purpose Services (MPS) Program which has a primary aim to deliver integrated health and aged care services in rural and remote communities that cannot support standalone facilities. As a result, older people can remain in their communities, closer to family and friends, while accessing necessary care. The program encompasses a range of services including residential and home care, acute and subacute care, emergency, allied health, and primary health services. It is all funded jointly by the Australian Government and state and territory governments, with funding shared between them.
The National Aboriginal and Torres Strait Islander Flexible Aged Care Program aims to fund culturally appropriate aged care services for older Aboriginal and Torres Strait Islander peoples, primarily in rural and remote areas. It does so by recognising the importance of cultural safety in aged care, ensuring services respect and support unique cultural identities and needs. A key element of its success is that it emphasises worker registration and regulatory flexibility, cultural appropriateness, and accessibility, thus empowering communities to tailor services to their needs rather than expect people to fit into pre-existent structures and models.
Lastly the General Practice in Aged Care Incentive seeks to encourage continuous and quality primary care for older people residing in aged care homes by their regular GP and practice. Financial incentives are provided to GPs and practices registered with Incentive for providing regular visits and care planning. This has already resulted in improved continuity of care and a reduction in avoidable hospitalisations.
There are certain key themes in all these programmes including a stress on ensuring equitable access to quality aged care services for all Australians, regardless of location or cultural background. They seek to promote models that integrate various health and aged care services to provide holistic care and improve outcomes. And being very aware of issues of fiscal and demographic/geographic sustainability they directly address the challenges related to funding, workforce, and infrastructure to ensure the long-term viability of aged care services.
What does all this mean?
In rural and remote areas of Scotland, where communities are dispersed, resources are limited, and access to healthcare and social services can be challenging, Younghusband’s approach combined with some Australian insight offers, I would suggest, a potentially valuable framework for effective social care and health delivery. I would suggest four key aspects.
There needs to be a greater flexibility in the registration of services. The introduction of one registration requirement for any and all social care services would enable providers to exercise greater flex in the delivery of services. So, a residential care provider could also work in the community delivering care at home and day care/community supports. Whilst this is technically possible at the moment the process of dual registration and all that comes with it is cumbersome and stymies creativity and investment. Australia is rich in examples of the benefits of such a flexible approach to registration.
Clearly one of the major challenges is attracting and retaining a workforce. Again, Australia evidences what can be achieved when it is the person who is registered to work across multiple settings rather than limited in their scope and practice to one service or model of care and support. This serves to attract new workers because there is a clear appeal in working across environments, in the variety this offers a practitioner and in the positive ability of a worker supporting an individual across settings, transitioning from community through respite provision into permanent residential or advanced care.
Part of Younghusband’s work was her eagerness that such flexible approaches to professional role would become commonplace in integrated environments. We are not seeing this in Scotland, and I think this offers a direct challenge but also opportunity to nursing and social care colleagues. Many of us still remember the early models of district or community nursing which had a critical component of ‘social care’ and preventative approaches within them. Even if they were not always explicit, they existed in practice. These have largely been lost, but I would contend that in our rural and remote communities there is a real opportunity to re-envisage the role of community nursing in partnership with social care practitioners. Some lessons might be learnt from what is increasingly happening in our care homes in the relationship between senior carers and nursing staff. Faced with demographic challenges and a lack of available staff we need to be creative and positive about re-designing roles to fit population need rather than limiting the demand to fit traditional roles.
Thirdly, Australia also evidences a much more flexible approach to regulatory oversight and its role in service improvement and delivery. In Scotland today the role of the regulator is detached from service delivery and still dominated by a policing and compliance ethos rather than a collaborative, mutual partnership where critical comment and advice works alongside service delivery through service improvement. We are still at the stage of a naïve and sometimes limiting application of standards to practice rather than a consensual collaborative approach which enables services and supports to uniquely express local context and ability. To be blunt accepting that you cannot deliver a service in a remote community with limited staff in exactly the same way that might be possible in a populous urban setting does not mean that you lower standards, but it does require a much more dynamic, partnership oriented and realistic approach to regulation and oversight. Without such flexibility in oversight and regulation any innovation is stymied and limited.
Lastly and it is perhaps stating the obvious the reason Younghusband’s approaches did not see the light of day was that their cost was considered too great. The reason the approaches now being evidenced in Australia are clearly bringing benefit is that there has been a not insignificant amount of fiscal and resource investment. In other words, none of the above will be achievable without the money following the vision.
Scotland’s remote and rural communities are crying out for a spirit of innovative adventure where new models replace tired and outdated, defensive and protectionist approaches. A thriving and vibrant social care sector can be a major contributor to addressing the de-population of our communities – if we decide to make the effort and engage in the adventure.
Donald Macaskill
Photo by Konrad Hofmann on Unsplash
