Invest to Save: How Councils Can Expand In-House Social Care Provision

One of the most pressing and persistent challenges facing local authorities today is the rising cost of social care. Whether it's adult social services or children's placements, the financial burden continues to grow often outpacing available funding and stretching council budgets to breaking point. The reliance on private sector provision, while sometimes necessary, is becoming increasingly unsustainable. Costs are high, availability is inconsistent, and quality can vary. For many councils, the question is no longer if they should reduce reliance on external providers, but how they can do so effectively.

This blog is not about the why. The moral and financial case for investing in council-owned and operated facilities is well understood. What’s less often discussed is the how how councils can practically deliver expanded in-house services that meet regulatory standards, reduce costs, and improve outcomes for residents. This is especially important in the current climate, where capital investment must be justified not only by long-term savings but also by immediate impact and deliverability.

In my recent interview with John Holley, Interim Project Director at Oldham Metropolitan Borough Council, we explored exactly that. Over the past 24 months, John has led a series of ambitious capital programmes aimed at increasing Oldham’s internal capacity to deliver social care services. His work spans children’s residential homes, adult social care, SEND provision, and the transformation of council assets into Family Hubs.

“It’s about being strategic with what you already own, and being bold enough to acquire what you need,” said Holley. “We didn’t wait for perfect conditions we built the right team, brought in external expertise where needed, and got on with it.”

John’s approach is rooted in pragmatism and pace. He understands that councils often have the vision but lack the internal capacity to deliver complex capital programmes. His solution? Build hybrid delivery models that combine internal leadership with external consultancy support, underpinned by clear governance and a relentless focus on outcomes.

Family Hubs: Repurposing Council Assets

One of the standout successes in Oldham has been the transformation of underused office buildings into vibrant, family-friendly hubs. These spaces are designed to bring together services for children, parents, and carers in a single, accessible location. The project involved scoping a delivery model, reviewing existing assets, and advising on conversion costs. John oversaw tenant relocations, refurbishment, rebranding, commissioning, and launch all completed a full year ahead of the Department for Education’s financial deadline.

“We turned underused office space into vibrant community hubs,” said Holley. “It wasn’t just about bricks and mortar it was about creating places families want to go.”

This wasn’t just a property project it was a strategic intervention in how services are delivered. By co-locating services and creating welcoming environments, Oldham has improved accessibility, reduced fragmentation, and made better use of its estate.

Residential Children’s Homes: Building In-House Capacity

The cost of external placements for children in care continues to rise, often exceeding £5,000 per week per child. For councils, this is not only financially unsustainable but also limits control over quality, location, and outcomes. Oldham’s response, led by John Holley through the Children’s Transformation and Sustainability Board, was to take back control by building in-house capacity.

John spearheaded a comprehensive programme to increase the number of council-run children’s homes. This involved a strategic review of existing property assets to identify suitable buildings for conversion, as well as the acquisition of private residential properties. He worked with both internal teams and external consultants to develop robust business cases, secure board approvals, and manage the entire delivery lifecycle from planning permission and net zero compliance to refurbishment and commissioning.

“We delivered the programme in half the time of a neighbouring authority, at a significantly reduced cost, and to OFSTED standards,” said Holley. “That’s what happens when you align strategy, property, and commissioning.”

This wasn’t just about speed it was about quality and sustainability. By investing in council-owned provision, Oldham now has greater control over placement availability, can ensure consistency in care standards, and has created a more financially resilient model for the future.

“We didn’t just build homes we built a system that works for children, families, and the council.”

SEND Provision: Scaling Up with External Support

Special Educational Needs and Disabilities (SEND) provision is another area where demand is rising sharply, and capital investment is essential. Oldham was awarded £20 million through the High Needs Capital Programme, but lacked the internal capacity to deliver at scale and pace. John’s solution was to source and mentor external consultants to lead delivery. He expanded a small existing programme into a comprehensive capital works stream, working closely with the council’s property services manager to recruit the right talent. His role didn’t stop at recruitment he provided strategic oversight, ensured alignment with council priorities, and supported the new team through delivery.

“You don’t always need to build capacity internally you need to know when to bring in the right people and how to support them,” said Holley.

This approach allowed Oldham to move quickly, maintain quality, and ensure that the programme was delivered in line with both funding requirements and local needs. It also demonstrated a flexible model of delivery that other councils can replicate one that blends internal leadership with external expertise, without compromising on accountability or outcomes.

“It’s about knowing your limits, and then designing a delivery model that turns those limits into strengths.”

Adult Social Care: Assisted Living Through Asset Conversion

Adult social care presents a complex challenge for councils not only in terms of cost, but also in ensuring dignity, independence, and quality of life for service users. Oldham’s £10 million Adult Social Care Capital Programme, led by John Holley, tackled this head-on by converting existing council assets and acquiring private residential properties to create assisted living environments tailored to local needs.

John’s approach was methodical and outcome-driven. He began by reviewing the council’s property portfolio to identify buildings suitable for conversion. Where gaps existed, he led the acquisition of private homes, ensuring each met planning, accessibility, and net zero requirements. With support from external multidisciplinary consultancies, he managed the full delivery lifecycle from business case development and board approvals to refurbishment and commissioning.

“We didn’t just buy buildings we created homes,” said Holley. “And we did it with speed, care, and cost-efficiency.”

This programme not only increased the availability of supported living placements but also reduced reliance on expensive external providers. It demonstrated how councils can use their capital programmes to deliver social care solutions that are both financially sustainable and deeply human.

“Every property we converted was a step towards giving people more choice, more control, and a better quality of life.”

Property Services: Strategic Oversight

Before diving into delivery, John began with a strategic review of several capital programmes across the council. This high-level analysis included costing and risk assessments that helped shape investment decisions and prioritise resources. His work provided clarity on feasibility, timelines, and potential barriers ensuring that each programme was grounded in reality and aligned with broader council objectives.

“You can’t deliver at pace without understanding your risks. That early strategic work gave us the confidence to move quickly and make informed decisions.”

This kind of oversight is often overlooked, but it’s essential. By investing time upfront to understand the landscape, John helped Oldham avoid delays, manage costs, and maintain momentum across multiple workstreams.

Conclusion

Oldham’s experience shows what’s possible when councils take a proactive, strategic approach to expanding in-house social care provision. With the right leadership, clear governance, and targeted external support, ambitious capital programmes can be delivered on time, within budget, and to regulatory standards.

“It’s not just invest to save it’s invest to transform,” said Holley.

If your council is considering similar programmes, the lessons from Oldham are clear:

• Start with what you have: Review your existing assets and identify opportunities for conversion.

• Bring in the right support: Use external expertise to fill capacity gaps without losing control.

• Don’t wait for perfect conditions: Build momentum through strategic oversight and decisive action.

The opportunity to reshape social care provision is here and it’s achievable. With vision, collaboration, and a commitment to delivery, councils can create services that are not only cost-effective but truly transformative for the communities they serve.