3. Background, aims and options

Background to policy area

The establishment of the National Social Work Agency (NSWA) is a response to longstanding and well-evidenced challenges in Scotland’s social work sector. These include persistent workforce shortages, high vacancy rates, increasing demand and complexity of caseloads, and a lack of national coordination in workforce planning, education, and professional development. The current system is characterised by fragmented leadership, inconsistent service delivery, and a fragile student placement system, all of which undermine the ability of social workers to fulfil statutory duties and deliver high-quality services.

Insight drawn from existing policy forums and routine professional interactions within the sector has highlighted these challenges, recognising that formal engagement specific to the BRIA has not yet been undertaken.

Stakeholder feedback, including from local authorities, third and independent sector providers, higher education institutions, and sector representative organisations, has consistently highlighted the need for a national agency to provide strategic leadership, coordinate improvement efforts, and support the delivery of consistent, high-quality social work services across Scotland.

The National Social Work Agency will lead excellence in social work, and will work in partnership with the social work profession, people with lived experience and partners to strengthen practice, elevate the profession and drive positive change. It will advise Scottish Ministers, drive national coordination of policy affecting social work and have oversight of national workforce planning, social work education and learning, and improvement priorities and national implementation support.

Rationale for action

The rationale for establishing the NSWA is underpinned by:

• National landscape: the current system does not provide sufficient national oversight or coordination to address workforce pressures, ensure consistent standards, or support professional development
• policy objectives: the Scottish Government’s commitment to improving public services, reducing inequalities, and promoting a wellbeing economy requires a more cohesive and effective social work profession
• stakeholder feedback: engagement with a wide range of stakeholders has identified clear gaps in leadership, workforce planning, and support for employers, including businesses and third sector organisations delivering social work services

Purpose / aim of action and desired effect

The purpose of the NSWA is to deliver a transformative change in how social work is led, supported, and coordinated across Scotland. The desired outcomes are:

• a skilled, supported, and sustainable social work workforce
• improved consistency and quality of social work services
• national leadership and strategic oversight for the profession
• enhanced workforce planning, education, and professional development
• better outcomes for individuals, families, and communities who rely on social work services

These aims align with the Scottish Government’s National Performance Framework and the National Strategy for Economic Transformation, supporting inclusive growth, social justice, and a wellbeing economy. The NSWA will also contribute to Scotland’s attractiveness as a destination for investment in public service innovation and workforce development.

Outcomes and measurement

Desired outcomes are set out with specificity to ensure clarity for businesses and stakeholders:

• ideal outcome: a nationally coordinated, locally responsive social work system with a skilled, supported, and sustainable workforce, delivering consistent, high-quality services across all sectors
• minimum acceptable outcome: a coherent structure for workforce planning, professional development, and policy implementation that stabilises the profession and improves service delivery

Outcomes will be measured through annual reporting, workforce data, service quality indicators, and stakeholder feedback. The impact assessment will provide a baseline for evaluating the effectiveness of the NSWA in delivering these objectives.

Options (considered so far / still open)

A range of options has been assessed to address the challenges facing Scotland’s social work sector and to deliver the desired outcomes for workforce sustainability, service quality, and national leadership.

Options proposed:

• business as usual (BAU): maintain current arrangements with fragmented leadership and no central coordination. Discounted as it does not address the systemic issues or deliver the required improvements.
• executive agency (preferred option): establish the NSWA as an executive agency within the Scottish Government, accountable to Ministers, with a formal partnership model involving COSLA and Social Work Scotland. This option provides clear governance, shared accountability, and the ability to deliver strategic oversight and improvement.
• non-departmental public body (NDPB): create a new statutory body independent of the Scottish Government, with its own board and budget. Discounted due to additional complexity, cost, and legislative requirements.
• new directorate within the Scottish Government: expand the existing Office of the Chief Social Work Adviser into a new directorate. Discounted as it did not meet criteria for shared accountability or partnership working.
• merge with existing NDPB: incorporate NSWA functions into an existing public body (e.g., SSSC or Care Inspectorate). Discounted due to risk of conflict of interest and lack of impartiality.
• partnership model: formalise a partnership between the Scottish Government/OCSWA and Social Work Scotland Ltd without creating a new public body. Discounted as it lacked sufficient authority and structure.
• private company model: establish NSWA as a private company funded by government. Discounted due to limited influence and potential governance challenges.

Following stakeholder engagement and multi‑criteria decision analysis, the executive agency model was selected as the preferred option due to its cost‑effectiveness, alignment with strategic goals, and ability to support shared accountability.

Sectors / groups affected

The establishment of the NSWA will have direct and indirect impacts across several sectors and groups within Scotland’s public, third, and independent sectors.

Directly affected sectors:

• local authorities: primary employers of social workers, responsible for service delivery across Scotland’s regions, recognising the NHS, in some circumstances also employ social workers.
• third and independent sector providers: organisations, including charities, social enterprises or private businesses, delivering social work and related services under contract with local authorities, including fostering, adoption, secure care, and advocacy services
• higher education institutions (HEIs) and training providers: universities and colleges offering social work qualifications and professional development
• Scottish Government and public bodies: internal Scottish Government teams and agencies such as the Scottish Social Services Council (SSSC), Care Inspectorate
• social work sector membership bodies: organisations, including the Scottish Association of Social Work, Social Work Scotland and UNISON

Business profile and location:

• businesses and organisations affected are located across Scotland, including urban, rural, and island communities. Some operate nationally, others regionally or locally.
• The workforce includes a wide demographic range, with a median age of 46—the highest in Scotland’s public sector—and a significant proportion nearing retirement age.
• Many third and independent sector providers are small or micro businesses, often embedded in local communities.

Other groups impacted:

• service users and the public: individuals and families who rely on social work services, including children, older adults, people with disabilities, and those involved in justice or mental health systems
• procurement and support services: businesses providing ICT, training, research, HR, and facilities management services will be engaged through procurement during the NSWA’s establishment and operation phases
• supply chain and broader impacts: the NSWA’s creation may stimulate demand for professional development services, digital infrastructure, and research partnerships, indirectly affecting suppliers and contractors

Direct and indirect impacts:

• directly affected businesses are those subject to new standards, workforce planning, or reporting requirements
• indirectly affected groups include suppliers, consumers, and other organisations in the social work ecosystem, as well as businesses that may experience changes in procurement or partnership opportunities

Socio-economic profile

The sector employs a diverse workforce, including a significant number of women, people from minority backgrounds, and those with lived experience of social work services.

Many affected organisations operate as social enterprises or charities, with a strong focus on community benefit and inclusion.

At present, there are limited privately owned enterprises that directly employ social workers in Scotland. The primary impact on private sector businesses is through supply chain relationships and commissioned services.

This assessment reflects initial analysis and early insight from ongoing sector relationships. Further evidence will be gathered through targeted engagement as the final BRIA is developed.