Worcestershire County Council – Overview and Scrutiny

Scrutiny Report Food Banks

September 2014 www.worcestershire.gov.uk

Food Banks Scrutiny Task Group Membership Richard Udall (Lead Scrutiny Member) Marc Bayliss Matthew Jenkins Peter McDonald Ken Pollock Mary Rayner Roger Sutton Officer Support Alyson Grice and Samantha Morris, Overview and Scrutiny Officers Suzanne O'Leary, Overview and Scrutiny Manager Further copies of this report are available from: Overview and Scrutiny Team Legal and Democratic Services Worcestershire County Council County Hall Spetchley Road Worcester WR5 2NP Tel: 01905 766916 Email: scrutiny@worcestershire.gov.uk Website: www.worcestershire.gov.uk/scrutiny

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Contents

Page

Foreword

2

Purpose of the scrutiny

3

Recommendations

3-5

Findings

5-8

• What is a food bank?

5

• Food Bank Usage

5

• Who uses food banks?

5-6

• How food banks operate in Worcestershire

6-7

• How referrals are made

7

The Council's role in supporting food banks and those who volunteer

8

Methodology

9

Appendix 1 – Food Banks in Worcestershire

10-11

Appendix 2 – Schedule of Activity 12

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Chairman's Foreword

As a Scrutiny Task Group we have interviewed many people who volunteer at food banks, they should be praised and congratulated for their hard work and dedication. The existence of food banks is a sad reflection of the times and a tragedy. It means the collective principle of the welfare state is not able to support all the people who are hungry. We have been told that more than half of all food bank users are in crisis because of benefit change or benefit delay; people going hungry due to bureaucracy. Benefit sanction has always existed but not to the extent we see today. The Task Group was concerned about the impact benefit sanctions are having and how their increased use is causing more and more Worcestershire residents into a food crisis. Volunteers and referral agencies have told us many stories about individuals and why they are in need of help. It is shocking that in Britain in the twenty first century that we cannot feed all our people and that residents are dependent on food parcels. The truth is that many people are just one pay packet away from needing the help of a food bank. Any one of us could fall upon difficult times and could need the friendship and help of volunteers to come to our aid. The scope of the scrutiny exercise has restricted what we can recommend. However, I hope our recommendations can be supported. They are based on trying to reduce the number of people who enter crisis. They are designed to ensure that those who do slip through the net need only ask for help once. We hope to give help and support to those who need it most and if possible prevent a crisis from happening. We hope that in time the need for food banks will reduce. However, until that day arrives, we wish to thank all those people who give their time, money and energy to help those less fortunate than ourselves.

Cllr Richard Udall Lead Member, Food Banks Scrutiny Task Group

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Food Banks Scrutiny Report

Purpose of the scrutiny

1. On 16 January 2014 Council agreed the following Notice of Motion:

''Council notes the increase in Food Banks in the County and is worried about how residents in need of their service can gain legitimate access. Therefore, Council calls upon the Overview and Scrutiny Performance Board (OSPB) to investigate how this Council can help to support, co-ordinate and nurture the growing number of volunteers who wish to help with the provision of Food Banks and how we can provide advice and a co-ordinated response.''

2. On 30 January the OSPB agreed that a Scrutiny Task Group should be set up, led by

Councillor Richard Udall. The Terms of Reference were to examine:

• What is a food bank; • Why food banks exist; • How food banks operate in Worcestershire; • Who uses food banks; • How referrals are made; and • The Council's role in supporting food banks and those who volunteer.

Recommendations

3. In drawing up the recommendations the Task Group has been mindful of what the

County Council can and cannot influence. Recommendation 1

4. The County Council should develop a signposting leaflet containing key information on WCC services, which could be given to food banks for them to use when signposting people to County Council services in order to provide help with underlying problems. In particular, a number of referral agencies and food banks demonstrated poor knowledge of the County Council Access Centre. We recommend that the County Council considers methods to generate more awareness of the Access Centre and the services it can provide.

Recommendation 2

5. It is acknowledged that food banks are charitable and voluntary bodies. However in the spirit of joined up working, the Task Group would like the County Council to consider signposting the location of known food banks in Worcestershire on its website (possibly via the Voluntary and Community Sector page or the Act Local website) to ensure that this information is easily accessible to those professionals who may need information about a food bank or may wish to find out how to access a food bank.

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Recommendation 3

6. County Council officers should work with those running food banks and referral agencies to provide information to County Councillors so that they are better able to signpost residents in crisis to relevant services.

Recommendation 4

7. Given that the food banks have limited opening times, the Task Group recommends that consideration should be given to replicating the good practice adopted in Malvern where the Children's Centre works with the Malvern Food Bank and acts as a pick up point for emergency food parcels when the food bank is closed. We recommend that County Councillors should work with food banks, community groups and Parish Councils in their division to identify suitable premises for use as pick up points outside of local food bank operating hours.

Recommendation 5

8. The Task Group heard that in Worcester, most referrals to food banks are from Worcester Citizens Advice Bureau and Worcester Housing and Benefits Advice Centre (Worcester CAB & WHABAC). We also heard that Worcester CAB & WHABAC was currently dealing with a large increase in their workload and is struggling to cope with the pressure. The Task Group recommends that the Cabinet Member considers how Worcester CAB & WHABAC is funded to help it to provide early intervention to reduce the need for food bank use.

9. In addition, in order to increase councillor awareness, the Overview and Scrutiny Performance Board (OSPB) may benefit from a presentation from local CABs on their work within Worcestershire.

Recommendation 6

10. The County Council should consider offering support for the training of food bank volunteers in up to date County Council services and protocols, manual handling techniques, health and safety, risk assessment and food hygiene when they are running such courses for County Council staff.

Recommendation 7

11. In order to address issues of social stigma, the County Council should investigate ways to raise awareness of the work of food banks with vulnerable people, for example, the over 65s.

Recommendation 8

12. Several food bank representatives commented on the number of people they helped who had poor cooking skills and were lacking the necessary equipment, such as can openers, microwaves or even kettles. We heard that the food banks, as well as providing food, often needed to provide guidance on how to cook food. We also heard that there was a particular issue with some children who may go without hot food during the school holidays. Therefore, the Task Group recommends that consideration should be given to replicating the role of the Community Food Development Worker across the County. (This is currently a time limited post attached to Malvern Hills district only). This would facilitate the spreading of the good practice seen in the Malvern Children's Centre which works with residents in developing their food

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preparation skills and aims to provide more awareness of affordable, nutritious food available for families during school holidays.

Recommendation 9

13. The County Council should encourage all schools in Worcestershire to offer pupils lessons in practical cookery and household budgeting, giving them the opportunity to acquire basic life skills in food preparation and financial management.

Recommendation 10

14. A copy of the Food Banks Scrutiny Task Group's Final Report should be sent to all county MPs together with a request that they contact the DWP to seek data on benefit withdrawal and sanctions.

Recommendation 11

15. The Task Group suggests that its recommendations are reviewed in 2 years' time to assess progress made.

Findings

What is a Food Bank?

16. Food banks are non-profit making organisations that provide food parcels to those in crisis who have insufficient money to buy food. There are at least nine food banks in Worcestershire.

Food Bank Usage

17. Figures from the Trussell Trust show that nationally the number of people receiving three days’ emergency food increased significantly from 346,992 in 2012-13 to 913,138 in 2013-14.

18. The table below shows the number of people helped by the Trussell Trust in the West Midlands in the last 2 financial years. Figures for Worcestershire are shown where available.

1

2012/13 2013/4

West Midlands Worcestershire West Midlands Worcestershire

Adults 24,997 2,927 58,036 7,076

Children 16,399 1,436 35,425 3,792

Total 41,396 4,363 93,461 10,868

Who Uses Food Banks?

19. There is no one particular section of society that uses food banks. Food bank clients include individuals and families in crisis situations, and working and non-working households. Indeed, the Trussell Trust representative told us that the majority of people living in poverty in the UK are in work.

1 From Trussell Trust.

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20. The Task Group was told that there were various reasons why people may need to use a food bank, including:

Benefit delay

Low income (including zero hours contracts)

Benefit changes

Delayed wages

Homelessness

Unexpected loss of job

Unemployment

Sickness (including mental health issues)

Debt

Domestic violence

Refused crisis loan

21. Increasing food and fuel prices, static incomes (including zero hours contracts), employment and benefits issues have all contributed to a situation where a tight budget can easily escalate into a crisis situation where there is no money to buy food. In some cases people are left with impossible choices to make, such as whether to pay a heating bill or buy food. For some people, their financial situation is so precarious that a larger than expected bill or a missed benefit payment can mean no money for food that week and anecdotal evidence from the police suggested that the existence of food banks may divert people from stealing food.

22. However, it was clear to us that, for many people, turning to a food bank was a last

resort and one particular concern we heard was that the over-65s were often too embarrassed to access food banks.

23. Food bank staff, Worcester CAB & WHABAC all cited benefit delays and sanctions

(stoppage of benefit money) as a major factor behind the increasing demand for food banks, caused in the main by bureaucracy, depriving people of food over short periods, rather than long term food deprivation. The Trussell Trust advised that over 50% of referrals were the result of benefit changes or benefit delay.

24. Although the Task Group understands and appreciates the reasons behind

Government welfare reforms, we heard clear anecdotal evidence that benefit delays, changes and sanctions penalise those in the most difficult of circumstances and can cause extreme financial hardship and temporary lack of food. We welcome steps taken by Robin Walker MP to take this issue up with the DWP.

25. The Task Group discussed whether the rising demand for food banks was simply the

result of there being more food banks in existence, and whether food banks were substituting for other provision or reflecting a genuine increase in need. By way of evidence, Members noted that the Defra commissioned report into food security in the UK

2 concluded that the increase in the number of food banks was demand led rather

than supply led. How food banks operate in Worcestershire

26. An important point to make is that the County Council has no direct involvement in the running of food banks in the County. As a result, it was difficult for the Task Group to establish the full picture of food bank provision in Worcestershire and we acknowledge

2 Household Food Security in the UK: A review of Food Aid, Food Ethics Council & University of Warwick,

February 2014

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that there may be food banks operating that we were not aware of and, as a result, are not included in the experience of this scrutiny exercise.

27. In Worcestershire food banks operate in a range of ways, from the highly organised

Trussell Trust food banks, which work to a national template, to the smaller-scale, more informal work of NewStarts in Bromsgrove, Simply Limitless in Kidderminster and the Tenbury No Interest Loan Scheme (NILS).

The Trussell Trust

28. Seven food banks in the county are run by the Trussell Trust, a national Christian organisation based in Salisbury. Trussell Trust food banks currently operating in the county are listed in Appendix 1.

29. The two aims of the Trussell Trust are to:

(a) Give emergency food help to those in crisis (b) Provide a signposting service to agencies who could help with a client's

underlying problem.

30. Trussell Trust food bank network operates in partnership with local churches and communities, serving people of all faiths or no faith. The Trust has prescriptive guidelines about how all of the food banks operate.

31. Each project is run independently and is responsible for its own funding, with central

support being provided for branding, material and advice from the Regional Manager. The Trust also provides a website which was funded and updated centrally and an online data collection system which was used to record clients' details, food donated and food given out. This enabled the Trust to provide national, regional and local snapshots.

32. Non-perishable food is donated by local people (either directly to a food bank or

church, or via supermarket collections). Volunteers help run the food banks by packing, sorting and distributing the food and the food banks are usually open for a couple of hours approximately two or three times per week.

33. The Trussell Trust has an ongoing relationship with Tesco who, as well as providing collection points for food donated by the public, also give the local project 30% of the value of the extra goods in recognition of the additional purchases in the supermarket.

Other provision

34. Other food banks in Worcestershire operate independently not as part of a national network, but with the support of church and community links. These, we found, were run on a less formal basis and often provided other services as well such as a crèche.

How Referrals are made

35. Every referral to a Trussell Trust food bank is made by frontline care professionals (such as doctors, health visitors, social workers, Citizens Advice Bureau staff, welfare officers, the police and probation officers) who will identify that a person is in crisis and will issue a food voucher. Up to three vouchers can be allocated per crisis situation and clients could be issued with vouchers in relation to a maximum of 3 crises per year. The vouchers are then presented to the food bank in exchange for a three day

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supply of nutritionally balanced food made up according to the individual or family's circumstances, e.g. a family of five people would receive a three day supply of food for five people not just the person being allocated the voucher. The food provided would be adapted to suit the client's cultural background.

36. The Trussell Trust's Network Manager told us that 70% of the charity's clients only came to the food bank once. The other 30% may come twice or three times, but only a tiny minority were referred multiple times. She suggested that this was as a result of the robust system of referral and why it was important that clients were referred by frontline care professionals in order to receive help (eg a teacher, doctor, social worker). These professionals would know the client well and would be trusted to make a professional judgement and could offer continued help with the underlying issues.

37. Whilst collecting the food parcel, the volunteers would offer the opportunity for a cup of tea and a chat and try to signpost the individual to the appropriate services to help with their situation. The volunteers at the food banks make the point that they are non-judgemental and would only offer signposting advice if someone wished to discuss their reasons for needing a food bank. We were also advised that although the Trussell Trust was a Christian organisation, the food banks served people of all faiths or no faith. (Indeed elsewhere in the country food banks worked in partnership with local Mosques and Sikh Temples.) If people were in distress, volunteers might offer to pray with a client if they felt this would help, although this was never forced on to clients.

38. The sample of other food banks that the Task Group met operated in a less

prescriptive way. Some were trying to operate on a referral basis but were more flexible in terms of allocating a food parcel without a referral if they felt it was necessary. Others were offering a hot meal and food parcel (not necessarily nutritionally balanced) and basic recipe cards. One food bank we talked to also offered some basic budgeting advice.

39. It is important to note that all of the providers we talked to just wanted to help people

who are in genuine need and were very willing to go the 'extra mile' to expand their provision, if possible to include practical necessities such as can openers, toiletries and baby items.

The Council's role in supporting food banks and those who volunteer

40. The food banks we visited were keen to maintain a degree of separation and independence from both central and local government. Therefore, areas in which the County Council can directly support their work are limited. However, it was suggested that the Council could assist in publicising food banks in a positive light and helping to dispel myths surrounding use of food banks.

41. The scrutiny found there was no shortage of volunteers wishing to help out at food

banks. In fact one of the food banks told us that they had a three week rota for volunteers, as they currently had an oversupply of people wanting to help.

42. Food banks would welcome any support the Council could offer in relation to training of volunteers, such as in up to date services and protocols which may be useful for dealing with clients, or to allow other food banks to build on the best practice of Malvern.

43. Food banks would also welcome financial help towards - or easy access to - training

in manual handling techniques, health and safety, risk assessment and food hygiene

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and would welcome an opportunity to discuss the possibility of 'piggy backing' onto any such training that the County Council provides for its own staff.

Methodology

44. The Food Banks Scrutiny Task Group comprised cross-party volunteers from Overview

and Scrutiny Panels.

45. As this was a scrutiny of a service that the County Council did not own or have a leadership role in, the Task Group was mindful throughout about what the County Council could actually influence.

46. In summary, evidence has been gathered from a wide variety of sources including a

number of visits to food banks, discussion with officers of the Trussell Trust, Worcester Citizens Advice Bureau (CAB) and Worcester Housing and Benefits Advice Centre. The Task Group also spoke to the Cabinet Members with Responsibility for Localism and Communities, and Health and Well-being, and to the Head of Public Health, the Access Manager (DASH), the Community Food Development Worker and an Officer from the Worcester City Early Help Office.

47. Task Group members also considered relevant publications and reports, including:

Food Ethics Council & The University of Warwick on behalf of DEFRA, Household Food Security in the UK: A Review of Food Aid, February 2014

Church Action on Poverty and Oxfam, Below the Breadline: the relentless rise of food poverty in Britain, June 2014 www.church-poverty.org.uk/foodfuelfinance or www.oxfam.org.uk/policyandpractice

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Appendix 1 – Food Banks in Worcestershire

Trussell Trust Area Address Phone Number/Email Address Opening Times

Catshill & Marlbrook

Catshill Baptist Church Milton Road Catshill Bromsgrove Worcestershire B61 0NA

07542 102649 info@catshillmarlbrook.foodbank.org.uk

Wednesdays 10-11:30am Fridays 9:30-11:30am

Droitwich Old Library Centre 65 Ombersley Street East Droitwich Worcestershire WR9 8QS

07532 130604 info@droitwichspa.foodbank.org.uk

Mondays 12-2.00pm Thursdays 2-4pm

Kidderminster Baxter Church Hall The Bull Ring Kidderminster Worcestershire DY10 2AA

01562 746600 kiddyfb188@gmail.com

Monday and Wednesday 12:30-15:30pm Friday 09:30 - 15:30pm

Malvern Unit 4 Spring Court Spring Lane South Malvern Worcestershire WR14 1AT

07581 716933 info@malvernhills.foodbank.org.uk

10:15-12:45pm Monday (except Bank Holidays) 10:15-12:45pm Thursday

Pershore 36 Church Street Pershore Worcestershire WR10 1DT

01386 555347 info@pershore.foodbank.org.uk

Tuesdays and Fridays from 11am to 2pm

Redditch Oasis Christian Centre 4 Plymouth Road Redditch Worcestershire B98 0QN Or Christchurch Ryton Road Matchborough Redditch

01527 585926 info@redditch.foodbank.org.uk

Monday - Wednesday 10 – 2pm Friday 1 – 4pm Wednesday 12 noon - 4pm

Worcester Unit 2 Carden Court Carden Close Worcester WR1 2AR

01905 780400 info@worcester.foodbank.org.uk

Mondays, Wednesdays and Fridays 11am-2pm

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Other

Newstarts 1 Sherwood Road Aston Fields Bromsgrove Worcestershire B60 3DR

01527 882410 admin@newstarts.org.uk

Monday-Friday 9am-5pm Saturday 10am-2pm

Simply Limitless

Simply Limitless Puxton Lane Kidderminster Worcestershire DY11 5DF

01562 751144 info@simply-limitless.org

Wednesday 6-7.30pm

Tenbury Nils 4 Teme Court, Teme Street, Tenbury Wells WR15 8AA.

Tel/Fax 01584 811512 10am to 2pm Tuesdays and Thursdays

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Appendix 2 – Schedule of Activity

Date Event

25 March 2014 Scrutiny Task Group Meeting with Voluntary and Community Sector Unit Co-ordinator

30 April 2014 Visit to Catshill Food Bank

2 May 2014 Scrutiny Task Group Meeting with the Network Manager, Trussell Trust

9 May 2014 Visit to Droitwich Methodist Church: Set-up meeting for the Droitwich Food Bank

13 May 2014 Task Group Meeting with Cabinet Members with Responsibility for Localism and Communities, and Health and Well-being, and the Head of Public Health

14 May 2014 Visit to NewStarts Food Bank, Bromsgrove

19 May 2014 Visit to Malvern Food Bank

25 June 2014 Visit to Worcester Food Bank

1 July 2014 Scrutiny Task Group Meeting with the Access Manager, Community Food Development Worker and an Officer from the Worcester City Early Help Office

8 July 2014 Visit to Worcester Citizens Advice Bureau (CAB) and Worcester Housing and Benefits Advice Centre

14 July 2014 Visit to Simply Limitless Well-being Centre, Kidderminster

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This document can be made available in other languages (including British Sign Language) and alternative formats (large print, audio tape, computer disk and Braille) on request from

the Overview and Scrutiny Team on telephone number 01905 766916 or by emailing scrutiny@worcestershire.gov.uk