Agenda item

Recommendations

 

       i.         That Executive notes the consultation undertaken on the proposed closure of Cauwood Day Service in Malton.

 

     ii.         That Executive notes the market development work undertaken to scope an alternative community-based support offer in Malton with a continuous workforce model.

 

    iii.         That Executive supports the proposal to close the building currently used for Cauwood Day Services and to develop and implement the proposed alternative transformed service model, and free up the site for a potential Extra Care.

 

Considered a report of the Corporate Director Health and Adult Services seeking approval to proceed to close the building currently used for Cauwood Day Service and to develop and implement the proposed transformed service model, keeping the Cauwood identity and providing appropriate support for individuals. The closure of the building would enable the development of an Extra Care Housing scheme in Malton. Before introducing the report, the Executive Member for Health and Adult Services, Councillor Michael Harrison circulated the following recommendations of Care and Independence Overview and Scrutiny Committee which had met earlier in the morning to consider the item:

 

The Committee endorses the recommendations arising from the recent meeting of the Thirsk & Malton Area Committee i.e:

 

That the Committee unanimously:

 

1. Supports the action requested within the petition, namely “to protect the service Cauwood provides - whether in its current building or a suitable new one”

 

2. Recognises the positive additions in the new executive report and commitment to a new Cauwood building following the consultation and community campaign. ⁠

 

3. Requests the Executive strengthens the recommendations to make it expressly clear that the current Cauwood building will remain open until an alternative site in the Ryedale area has been identified, demonstrated to have the support of service users and their families, and is fully operational to guarantee the continuity of quality care.

 

4. Seeks assurance that any replacement provision delivers equivalent (or improved) facilities and services, that the level of accreditation currently held by Cauwood is maintained, retains local access to a Changing Places facility, and ensures there is no reduction in the safety, dignity, accessibility or quality of care experienced by current service users.

 

 

In addition the Committee recommends that the following be provided to the Care & Independence Overview & Scrutiny Committee:

 

• Monthly detailed reports are provided on how works are progressing, in line with parents needs at front and foremost.

 

• A detailed timeline of works, locations and facility specifications is provided detailing provision, including changeable facilities in Malton.

 

• Full details of budgets set aside for closure and refit/refurbishment of all premises needed for continuation of services be provided.

 

Councillor Michael Harrison then presented the Executive report, reminding the meeting that consideration of the proposals had been deferred from April to enable further engagement and consultation. The Executive heard that the consultation had now been completed and that the revised proposals would retain the Cauwood service identity and existing staff team and transition to a new service model based around core locations in Pickering and Malton together with wider community-based opportunities. It was confirmed that the existing building would remain open until alternative arrangements were in place and users had completed their transition.

 

The Chair then invited local division members, Councillor Keane Duncan and Councillor Lindsay Burr and Chair of the Care and Independence Overview and Scrutiny Committee, Councillor Barbara Brodigan to address the meeting. Councillor Duncan, organiser of the Save Cauwood petition thanked members and officers for undertaking further consultation and stated that the campaign's objective had been to safeguard the service rather than the existing building. He highlighted that families had sought assurances regarding the continuation of the service, retention of trusted staff, replacement accommodation and continuity of support. He advised that, in his view, the revised proposals provided those assurances and reflected the views expressed by families during the consultation process. He also noted the unanimous support expressed by both the relevant Area Committee and Overview and Scrutiny Committee. Councillor Burr welcomed the strengthened proposals and emphasised the importance of continuing engagement with parents, carers and service users. She referred to recommendations from the scrutiny process seeking regular updates on implementation, progress against timelines and the development of replacement facilities. Councillor Brodigan noted the significance of the proposed alternative transformed service model set out in the report and the involvement of overview and scrutiny to ensure the council got it right.

 

The Executive discussed recommendations from the Area Committee and Overview and Scrutiny Committee relating to ongoing reporting arrangements. Councillor Harrison acknowledged the concerns and anxiety experienced by families during the review period but noted the significant progress made through consultation and engagement. He emphasised that whilst the overview and scrutiny committee should be kept informed regarding implementation and progress, scrutiny arrangements must respect the confidentiality of individual service users and their personal care arrangements. It was agreed that regular reports should be provided to scrutiny covering the progress of service transition arrangements, building works, timelines and financial matters without disclosing the confidential personal information regarding individual care packages and operational arrangements. Members also discussed the frequency and format of future reporting. Whilst recognising scrutiny's role in providing accountability, Members considered that reporting arrangements should remain proportionate and flexible, allowing updates to be provided when there was substantive progress to report.

 

Resolved (unanimously)

 

1. That Executive notes the consultation undertaken on the proposed closure of Cauwood Day Service in Malton.

 

2. That Executive notes the market development work undertaken to scope an alternative community-based support offer in Malton with a continuous workforce model.

 

3. That Executive supports the proposal to close the building currently used for Cauwood Day Services and to develop and implement the proposed alternative transformed service model, and free up the site for a potential Extra Care Housing scheme in Malton.

 

4. The Executive notes the recommendations from both the Thirsk and Malton Area Committee and the Care and Independence Overview and Scrutiny Committee, with a commitment to provide regular reports to scrutiny covering how works are progressing to buildings and to transition the service, timelines, and finances.

 

Reasons for recommendations

 

As set out in the report to the Executive Committee in April, the needs and aspirations of people who require care and support are changing. The Council also aims to expand community-based support that promotes health and wellbeing in the widest sense. It wants to help adults stay independent and active as they grow older, maintain friendships, and enjoy life fully. To achieve this, people need alternative care and support options beyond traditional building-based day services.

 

The current operational position at Cauwood Day Service indicates that it is not sustainable to continue to deliver services from the site in the medium-long term.

 

A robust consultation has been undertaken and the outputs carefully analysed to inform next steps. In considering the updated recommendation, account has been taken of consultation feedback alongside equality impacts, asset condition, financial impact, strategic priorities and the long-term sustainability of the current service model.

 

The revised proposal is to close the building that is the base for the current service. Before this is implemented a revised service model will be implemented offering a hybrid community based model with a local anchor or touchdown space with a continuous workforce and an alliance-based approach with providers, the VCSE sector and community assets. The impact of this change would be mitigated by robust, person-centred transition arrangements. Work would continue to develop longer-term proposals for a community space within the extra care development.

 

These proposals would address many of the concerns raised by people, families, staff and the wider community about the proposed closure of Cauwood, whilst providing a new community space and enabling the delivery of the Council’s wider Extra Care Housing ambitions in Malton.

 

Alternative options considered

 

A number of alternative options were considered before reaching the recommendation to close the service. These included retaining the service in its current form, or commissioning or re-providing a like-for-like service from the independent sector. Each option was considered against operational sustainability, value for money, capital requirements and alignment with the Council’s strategic approach to adult social care.

Whilst there are no savings committed to the MTFS for Cauwood specifically, continuing to operate the service as it currently stands was not considered financially sustainable. Based on the 2025/26 gross outturn and actual utilisation, the cost of delivering the service is £50.63 per person per hour. For the service to be operationally sustainable, this cost would need to be significantly closer to the average market rate of £25.77 per hour. This indicates that the current model is operating at a materially higher cost than comparable provision available in the wider market.

Utilisation levels also demonstrate that demand for the service is insufficient to support its continued operation in its current form. The service is designed to support up to 12 people per day, providing a total of 60 sessions each week across five days of operation. At present, only 20 of these weekly sessions are being used. To be financially and operationally viable over the longer term, the service would need to operate at, or close to, full capacity, and current levels of demand do not provide assurance that this could be achieved.

The option of adapting the service to support people with more specialist care needs was also considered. However, this would require refurbishment and redevelopment of the setting, resulting in further significant capital investment. Given the current and projected level of demand for the service, this level of investment was not considered proportionate or appropriate. The service is for people with an assessed eligible need under the Care Act and not for general public access. There is no evidence of a future pipeline of people who would benefit from this service in its current form. There was suggestion in the consultation response that the Council should market the service, however this is not a service suitable for access by the general public. Access through a Care Act assessment is important because it ensures support is allocated lawfully, fairly and consistently, based on each person’s eligible needs, individual outcomes and the most appropriate way to meet those needs.

Re-commissioning or re-providing a like-for-like building-based service was therefore not considered to offer a sustainable or strategic alternative. Whilst the service has historically provided valued support, the model no longer fully aligns with modern, personalised approaches to adult social care. People are increasingly seeking more flexible, community based support that promotes independence, choice, inclusion and access to ordinary community opportunities.

Whilst re-commissioning or re-providing a like-for-like building-base is not feasible, it is recognised that a flexible space is required in the local area, this was reiterated in the consultation feedback and the service development work referenced in section 4.2 of the report is set to achieve this and will include an alternative building base offer. In the longer term the Council has committed to creating a flexible space of this kind as part of the proposed Extra Care development.

The consultation also highlighted a suggestion that the Council explores retaining the Cauwood building whilst the Extra Care development is built. This has been considered but would not address the service sustainability challenges nor would it be feasible for the service to operate from a live construction site. This has been verified with proposed developers.

Consultation with development partners has indicated that the development of Extra Care in Malton would benefit from utilising the entire site currently occupied by Cauwood and Ashfield Care Home. This would allow for a sustainably sized scheme alongside supported bungalow accommodation and a flexible community space which could be used for broader service delivery. This layout would also support 2 rather than 3 storey development, limiting impact on neighbouring properties and minimising future planning issues.

Public statement

As referred to in Minute Item 955 above, below is the statement submitted by Caroline Garrod.

Cauwood is not just a service; it is a necessity for the disabled adults who attend and for the families who depend on it.

 

This centre is a lifeline for those who use it. It is the only one of its kind in the Ryedale and provides dedicated changing facilities, including the only fully accessible changing space in Malton. Cauwood also holds National Autism Accreditation status and offers gardens, sensory room, dedicated art room and breakout rooms. The main hall has access to the gardens, wildlife area and orchard, all of which are accessible.

 

The staff who dedicate their working lives to Cauwood are the heart of the centre. Their care, experience and commitment provide vital stability for the disabled adults and families who rely on them every day. Without them, that essential support would be lost.

 

The disabled adults of Ryedale need somewhere they can go each day where they feel safe, are cared for with dignity and respect, and can meet their peers and enjoy activities in a friendly, relaxed environment.

 

Not all disabled adults want to be out in the community. Some need the freedom and security of a safe space like Cauwood, where they can spend their days, use a sensory room, relax, be cared for and express themselves in ways that make them happy. A community setting does not meet everyone’s needs. Some struggle with noise and can feel overwhelmed in places such as cafes or garden centres. Others have physical disabilities that make being out in the community challenging, particularly in relation to personal care. Cauwood gives them the space, support and activities they need to enjoy their lives to their fullest potential.

 

As a parent, I ask you to listen to us and to other parents. Please engage with us and take the time to understand what we and the clients need. Do not make assumptions simply because the current trend is community-based day care. For many that is not always the right answer.

 

Cauwood was named after Reverend Cauwood, whose ethos and vision were to create a day care service to help support disabled adults.

Let’s not forget that, especially as the service has worked and met the user’s needs for the past 35 years.

Over the past few months, we have spoken with former workers, people whose families used to use the centre, and other families of disabled adults who did not know Cauwood existed but, would like to send their loved ones there now and in the future. Please listen to the families, and let’s keep Cauwood in the way it was created for now and for future years.

 

By working together, we may be able to develop Cauwood into something even stronger and more impressive for the people who need it most.

 

My plea to you as councillors is this: please do not close Cauwood until parents have full knowledge and written confirmation of the proposed new location, so that we can agree together that the site will offer everything the current Cauwood offers, and potentially more. The Cauwood ethos and name need to be retained and developed to meet the future needs of all service users, both now and in the years ahead.