Chapter Twenty-One. Partnership working in health and social care
Judy Cousins
KEY ISSUES
• Defining partnership working
• Exploring factors that promote and inhibit partnership working
• Promoting patient and public involvement
Introduction
A move towards integrated care and partnership working is evident throughout European health systems (Howarth et al 2006). The European Public Health Associates (EPHA; 2002) explain that a rise in chronic diseases accounts for this and state how a more integrated organization of health services is required in order to meet future user demands. Partnership working is a central feature of the Labour government’s modernization agenda for health and social care services, being considered fundamental to safe, resource-effective professional practice (Dowling et al 2004). Farrell (2004) and Barr (2004) discuss benefits of partnership working to include improved communication and enhanced responsiveness, pooling together of expert knowledge, service users having fewer professionals to deal with, professionals gaining a greater understanding of each other’s roles and responsibilities and a reduction in the duplication of services.
However, robust evidence to support these assumptions is scarce and what evidence does exist tends to focus on the process of partnership working rather than the outcome from the process (Dowling et al 2004). In addition, the Audit Commission (2005: 2) remind that ‘working across organizational boundaries brings complexity and ambiguity that can generate confusion and weaken accountability for professionals’. Questions therefore exist on what the political and social drivers for partnership working are, what partnership working means, what messages from research exist to inform on the benefits and limitations of working collaboratively, for professionals and service users, and what knowledge is required by nurses in order to promote patient and public involvement. This chapter will explore these issues.
Partnership working: political and social drivers
For those examining health and social policy in the UK since 1997 it would be difficult to find legislation that failed to propose partnership working as a pivotal strategy in the quest to deliver safe and effective health and social care services (see, for example, Department of Health, 2005, Department of Health, 2006 and Department of Health, 2008, Northern Ireland Department of Health and Social Services (NIDHSS) 2004, Department of Health, Social Services and Public Safety (DHSSPS) 2005, Scottish Executive, 2003 and Scottish Executive, 2004, Welsh Assembly Government, 2001, Welsh Assembly Government, 2005 and Welsh Assembly Government, 2007). Another significant driver for increased partnership working stems from the many non-accidental deaths of vulnerable children. The Department for Education and Skills (DfES; 2006) (which has recently been replaced by the Department for Children, Schools and Families) highlights how ineffective information sharing and a lack of collaborative working between agencies have acted as contributory factors in health and social care services failing to identify children facing extreme risk. Finally, the changing healthcare needs of an ageing society, and the drive to promote self-care and patient and public involvement in decision-making also figure significantly in the call for increased collaboration between professionals and between professionals and service users (DH 2008, WAG 2007).
Nursing policy from the four countries of the UK encourages practitioners to embrace partnership working initiatives (Box 21.1). This way of working is not new for public health and community nurses where informal collaborative working forms part of day-to-day practice. However, more formal partnerships are being called for in order to develop new ways of delivering services. Modernising Nursing Careers (Department of Health, 2006 and Department of Health, Department of Health, Social Services and Public Safety, Scottish Executive, Welsh Assembly Government, 2006), for instance, refers to joint working practices as an essential element in the future planning of nursing services, particularly in primary care, where it is envisaged traditional working boundaries will become increasingly blurred in order to improve care delivery.
Box 21.1
England
Department of Health (1999) Making a difference: strengthening the nursing, midwifery and health visiting contribution to health and health care. London: DH.
Department of Health (2002) Liberating the talents: helping primary care trusts and nurses deliver the NHS Plan. London: DH.
Department of Health (2004) The Chief Nursing Officer’s review of the nursing, midwifery and health visiting contribution to vulnerable children and young people. London: DH.
Department of Health; Department of Health, Social Services and Public Safety; Scottish Executive; Welsh Assembly Government (2006) Modernising nursing careers. London: DH.
Northern Ireland
Department of Health, Social Services and Public Safety (2003) From vision to action. Strengthening the nursing contribution to public health. Belfast: DHSSPS.
Department of Health, Social Services and Public Safety (2005) Realising the vision: nursing for public health. Belfast: DHSSPS.
Northern Ireland Practice and Education Council (2005) An exploration of nursing and midwifery roles In Northern Ireland’s health and personal social services. Belfast: NIPEC.
Department of Health, Social Services and Public Safety (2006) Regional redesign of community nursing project. Belfast: DHSSP.
Scotland
Scottish Executive Health Department (2001) Nursing for health – a review of the contribution of nurses, midwives and health visitors to improving the public’s health in Scotland. Edinburgh: Scottish Executive.
Scottish Executive Health Department (2003) Partnership for care. Edinburgh: Scottish Executive.
Scottish Executive Health Department/Royal College of Nursing (2005) Framework for developing nursing roles. Edinburgh: Scottish Executive.
Scottish Executive Health Department (2006) Rights, relationships and recovery – the review of mental health nursing in Scotland. Edinburgh: Scottish Executive.
Wales
National Assembly for Wales (1999) Realising the potential: a strategic framework for nursing, midwifery and health visiting in Wales into the 21st century. Cardiff: NAfW.
National Assembly for Wales (2001) Realising the potential briefing paper 2: aspiration, action, achievement – a framework for realising the potential of mental health nursing in Wales. Cardiff: NAfW.
National Assembly for Wales (2002) Realising the potential briefing paper 3: inclusion, partnership and innovation – a framework for realising the potential of learning disability nursing in Wales. Cardiff: NAfW.
Welsh Assembly Government (2007) Beyond 2007 – challenges and drivers for nurses, midwifes and specialist community public health nurses. Cardiff: HMSO.
It is interesting to note how partnership, collaborative and joint working are often used synonymously, however these terms do not necessarily mean the same thing and this can be misleading and cause confusion. Gaining a greater understanding of the terminology used to describe different approaches to working with others will enable nurses to more clearly articulate the scope of their involvement when working closely with others.
Partnership working: myths and meanings
The range of terminology which describes different ways that health, social care professionals and service users interact has been described by Leathard (2003: 5) as a ‘terminology quagmire’. Partnership and collaborative working appear as umbrella terms and these are often used synonymously; however, subtle differences between the two exist. The Audit Commission (1998) defines a partnership as a joint working agreement where partners cooperate to achieve a common goal but who are otherwise independent bodies, giving an impression of partnerships being more formal than collaborations. However, similar to partnerships, common to most interpretations of collaboration are shared purposes or goals and achieving outcomes that would not be possible if acting alone. According to Horwath and Morrison (2007), approaches to collaboration range from communication, to cooperation, coordination, coalition, and finally, integration. Arguably, these elements are also relevant to partnership working if accepting the Audit Commission’s definition, yet Dowling et al (2004) consider a partnership as something that is beyond collaboration, defining this to include collaboration, along with cooperation and joint working.
Such confusion makes it difficult to articulate clear differences between these two terms. Carnwell and Carson (2004) provide a useful distinction when describing a partnership as what something is versus collaboration as what is done. As well as partnership being understood in relation to professional working practices, it is also a key term used to describe relationships between professionals and clients. In this context Bidmead and Cowley’s (2005) concept analysis of partnership concludes that it is still an evolving theory but one which promotes mutual respect and empathy, enables choice and participation and is based upon honesty, equality and trust.
In relation to professional working practices, regardless of the term used, team working appears to be the vehicle used to facilitate partnership working, being considered the optimum way to share knowledge, skills, resources and experiences for the benefit of service users (Borrill et al 2002). As such, specialist community public health nurses, district nurses, community psychiatric nurses, practice nurses, community children’s nurses, school nurses and learning disability nurses may already or soon find themselves working within multidisciplinary/agency or interprofessional/agency teams. Again, the terms ‘multidisciplinary’ and ‘interprofessional’ are often used interchangeably despite both having very different meanings.
Multidisciplinary/agency working
The Latin word ‘multi’ means ‘many’; therefore multidisciplinary/agency working refers to two or more disciplines or agencies working with a patient, client or family. Crucially, however, these terms do not imply formal partnership or collaborative working between disciplines or agencies, as traditional divisions of professional knowledge and authority are retained in this way of working (Leathard 2003, Masterson 2002, Sheehan et al 2007). Multidisciplinary team members undertake independent assessments, and set goals and plan care in isolation (Batorowicz and Shepherd 2008). The multidisciplinary/agency team is composed of different professionals who work according to their particular scope of practice (Sheehan et al 2007). For example, primary care teams may be considered multidisciplinary, being composed of a range of practitioners such as GPs, practice nurses, district nurses, health visitors, etc. This form of working may be thought of as teams of practitioners from different backgrounds making ‘different but complementary’ contributions to healthcare (Leathard 2003: 5). Any collaboration between disciplines or agencies is invariably conducted on an informal basis.
Where working practices become more integrated, the term ‘joint-working’ is commonly used (Sloper 2004); for example, health visitors and learning disability nurses working together to deliver parenting programmes for parents with learning disabilities, occupational health and school nurses working collaboratively to prepare children for the transition to the workplace or district nurses and community psychiatric nurses planning joint initiatives to promote the mental health of the elderly.
Warmington et al (2004) discuss how multidisciplinary working results in practitioners working in isolation in the planning and delivery of services, leading to duplication of care. Yet Borrill et al (2002) state how this way of working is a prescription to put right the perceived short fallings of the NHS. It is unlikely, however, that Borrill et al’s interpretation of multidisciplinary/agency working is similar to that proposed in this work, illustrating inherent difficulties evident when attempting to distinguish between concepts and approaches where different understandings exist.
Interprofessional/agency working
Borrill et al’s (2002) understanding appears more akin to this work’s interpretation of interprofessional/agency working. The prefix ‘inter’ means ‘between’ and implies interaction between two or more different groups (Leathard 2003). Therefore, interprofessional/agency working is taken to mean two or more agencies working together in planned and formal ways and not simply through informal networking (Warmington et al 2004). Goals and care plans are formulated following consultation from all team members and practitioners share and even relinquish their professional claims to specialized knowledge in circumstances where other professional disciplines can deliver service user requirements more efficiently (Batorowicz and Shepherd 2008, Masterson 2002). Interprofessional working is characterized by blurring of professional roles where shared problem solving is performed in planning care and interventions (Sheehan et al 2007). Interestingly, ‘trans’ interprets as ‘across’ and also implies professionals working across traditional role boundaries – but to an extent where professional boundaries begin to actually dissipate, resulting in professionals developing expertise in other practice areas (Batorowicz and Shepherd 2008). Sloper (2004) cautions against confusing ‘interprofessional’ with ‘intraprofessional’ – a term used to denote differing specialist disciplines arising from one professional group, such as in the case of community nursing involving health visitors, district nurses, community psychiatric nurses, practice nurses, school nurses, etc.
Accepting that confusion surrounds definitions of multidisciplinary, joint and interprofessional working, Jones and Thomas (2007) still believe that all relate to practitioners working closely with colleagues from other professions in ways that promote the blurring of boundaries. One of the major benefits perceived from partnership or collaborative working is the facility to reduce duplication of practice through the reorganization of services, where one discipline or profession takes responsibility for an aspect of care hitherto performed by all – so that role blurring occurs as the team becomes more integrated. ‘Boundary blurring’ is one of the more recent terms to emerge from healthcare policy and it is interesting how effective interprofessional working is often defined in terms of practitioners recognizing commonalities of practice and reorganizing service delivery to avoid duplication of practice. Indeed, Masterson (2002) notes the move towards the blurring of boundaries between professions as the tendency and drive for certain professional activities to merge occurs. However, while boundary blurring is a term receiving significant attention, it too appears to be an ill-defined concept that requires clarification.
Boundary blurring
Rushmer and Pallis (2003) explain how boundary blurring does not mean that one agency is able to deliver the entire expertise of another – if it did then there would be no need for the agency in the first place. What it means is that while professions each possess unique qualities specific to them, they also share commonalities of practice that one professional could perform for all. Examples such as nurses undertaking prescribing, previously considered the sole domain of the medical profession, is one way that professional boundaries have already blurred. Not that boundary blurring only applies to professionals; it also occurs following abdication of professional roles to unqualified staff (Goble 2003).
Dowling et al (2004) believe that existing divisions and demarcations between professions and professionals will need to be set aside in order to rise to the challenge to work differently and collaboratively in the interests of patient or clients. However, expecting practitioners to identify commonalities in working practices and relinquish aspects of their role is not as easy as it may seem. Boundary blurring may be threatening for professionals, nervous about losing their professional identity and status, and this factor may seriously hinder integrated partnership working. Support and guidance are key ingredients in the development of new roles and, crucially, professionals need to be explicitly clear regarding their understanding of shared commonalities of practice, to ensure they work according to their level of competence. In fact, it is clarity of roles and explicitness that Rushmer and Pallis (2003) believe will facilitate greater integrated working partnerships rather than role blurring, which after all implies vagueness and lack of clarity.
Ultimately, the many definitions that exist to describe the different ways professionals work together overlap, coincide, and lack clarity. However, Hudson (2000) notes that while the what remains vague, the why of partnership working is crystal clear. Partnership working is reported to improve communication, prevent duplication of service delivery, improve understanding of different professional roles, enhance role development and, most important of all, improve service delivery to users. As such, partnership working will undoubtedly remain centre stage in government plans to deliver quality health and social care services. However, research evidence to support these claims is scarce, and far from partnership working being considered a harmonious process, different organizational cultures and numerous professional tensions can contribute to this being viewed as a threat to professional autonomy (Warmington et al 2004).
A specialist community public health nursing team of health visitors become concerned about the rising levels of childhood obesity in the locality. They decide that some forms of preventative interventions would be beneficial and believe that any action would be more effective if conducted in partnership with other health and social care professionals.
• What other professionals or agencies could the specialist community public health nursing team of health visitors work with in order to plan effective strategies to reduce childhood obesity?
• What barriers may impede such partnership initiatives?
Partnership working: messages from research
McLaughlin (2004) states that the concept of partnership working has become so central to government thinking that rather than asking if working in partnership is good or bad, questions instead centre on how to make partnerships work. This is somewhat naive according to Warmington et al (2004: 48), who remind that government policy ‘perpetuates the notion of interagency working as a virtuous solution to joined-up social problems and under-acknowledges interagency working as a site of tensions and contradictions’. Messages from research both corroborate and refute these opposing views.
Factors that promote and inhibit partnership working
A growing body of evidence informs on specific benefits experienced by practitioners from working collaboratively as well as factors that contribute to interprofessional working. For instance, Freeman and Peck’s (2006) research explored the impact of partnership working in integrated specialist mental healthcare provision from the perspectives of front-line practitioners, service users, carers and service managers. Their findings revealed how staff involved in joint-working teams found opportunities to discuss clients’ needs a valuable exercise, providing access to a range of perspectives hitherto not available. Co-location of teams reduced feelings of isolation and enhanced working relationships, and staff reported greater satisfaction and found their work to be more rewarding from having time and opportunities to work with previously difficult-to-engage clients in therapeutic ways.
Similarly, Hudson’s (2007) findings revealed how interprofessional working between social workers, district nurses and housing officers facilitated the development of trust and respect between professionals as well as promoting clearer understandings of each other’s roles and responsibilities, promoting the sharing of a common vision. The benefits of shared databases, access to IT resources and joint training also contributed to positive relationships. In addition, Larkin and Callaghan (2005) found statistically significant relationships between joint supervision, joint documentation and shared risk policies and increased awareness among professionals of interprofessional roles and responsibilities. Similar findings to the above have been reported by Molyneux (2001) and Shaw et al (2005) and together findings from these studies inform on a range of factors which promote interprofessional working (Box 21.2) and benefits experienced by practitioners as a result (Box 21.3).
Box 21.2
• Co-location
• Absence of a dominant agency
• Flexible and adaptable attitudes of staff
• Motivated, accessible, available and committed staff
• Effective IT resources
• Shared databases
• Joint training
• Joint supervision
• Joint documentation and risk policies
• Facilities for regular and effective communication between individuals
• Commitment of senior and front-line staff