Thirty-seven people were interviewed: 23 females and 14 males. Participants comprised seven patients/carers and 30 professionals, from across care sectors and regions of England (Box 2). The analysis identified three overarching themes and additional subthemes, which are discussed narratively below with supporting quotes.
Theme 1: Facilitators of primary care and social services integration
Participants highlighted factors facilitating integrated care for older people experiencing multimorbidity as follows:
Individuals and teams driving integration
Participants identified the role of key individuals or teams as innovators and drivers of integration:
‘There is a brilliant geriatrician … who had this proactive approach and worked very well also with her colleagues in GP practices … She was trying to coordinate things across the system, and … it really works well. A lot of it though is dependent on charismatic individuals.’
(Participant [P]14, local government, Public Health)
Interviewees credited individuals driving integration with recognising the benefits of empowering others and creating a culture that encourages initiative, enabling frontline professionals to develop joined-up solutions:
‘It’s just the people on the ground feeling they’ve got the trust, and the freedom and the expectation to come up with ideas when they’re seeing that things could work better … that really comes from Dr K empowering me and my team, and those around her.’
(P18, female, primary care/community services)
Team building was identified as essential to integration, described by an interviewee as an incremental developmental process:
‘We built things at a steady pace … it’s constant work … started with a small core district nurse GP social prescriber and our hub coordinator nurse, and we’ve built from there. So rather than waiting for the whole set to be ready, we’ve got started, we’ve built a good, strong core team. Then, social care were willing to come into that functional group … mental health have come in.’
(P19, primary care)
Some participants stressed that integration requires leadership across all levels and sectors of health and social care, especially to ensure that resources align with demand:
‘Having the willingness of the right people at the right level to say, “OK, so maybe the capacity is in the wrong place.”’
(P24, secondary care)
Interface roles
Participants identified the importance of non-clinical and clinical coordination roles, with various titles such as care navigators or integrated care coordinators, who work at the intersections where primary care, secondary care, and social services meet:
‘In the GP surgery, they had their own team who were involved more with social issues … and they called them health coordinators. It was one of the workers there helped me [an adult social worker] to organise sorting out his [an older adult client] house, because it was in a bit of a state.’
(P8, local government, adult social care)
Operationally, these interface roles were viewed as critical in facilitating integration among service providers by bridging gaps across sectoral boundaries:
‘Social prescribers are the linchpin of linking primary [care] with adult services … the enabler that gives that bit of confidence … the bridge between the two.’
(P28, voluntary sector)
Care coordinators were described as crucial in addressing the everyday social care and psychosocial needs of older people experiencing multimorbidity, once discharged into community settings:
‘Someone had gone home, a daughter had gone on holiday to Italy with the keys … The care navigator said, “With the say-so of the patient … can we get a new lock put on your door with a new set of keys, and we can discharge you home?” Actually, non-clinically, looking at the issue of saying: “OK, you’ve sorted out the clinical, let me sort out the social and community aspect.”’
(P33, voluntary/statutory sector)
Care coordinators were perceived as system navigators by carers and patients, providing support and advice when navigating the complex systems of health and social care:
‘There’s a real need for maybe an elderly care coordinator … within a hub of GP practices that you have somebody that’s responsible for the elderly people in your community … and maybe trying to ensure that they are in touch with the people that they need to be.’
(P3, carer/relative)
Another carer said:
‘when you’ve got four or five different things going on, you think … if there was just one person and we spoke to them and said, “Can this happen?” That would make a massive difference.’
(P2, carer/relative)
Having in place a layer of professionals located at potential ‘pinch points’ in the systems of health and social care was identified as not only significant in terms of reducing delays and blockages, but also in enabling seamless care transition across sectoral boundaries:
‘Some GPs are incredibly helpful, some aren’t. Some won’t share any information with us [adult social care]. Every surgery has got a clinical coordinator. If you’ve got a slightly risky discharge [from an acute hospital], we would phone them and say, “Mrs Smith is coming home with a four times daily care package, can you just pop out and see them?” … If they’ve got any concerns about their clients who are admitted into hospital, they’re very quick to phone us and say, give us the back story.’
(P11, local government, adult social care)
Co-location and collaboration
Participants identified co-location as a spatial and social enabler of integration. This concept is understood as a shared working environment where professionals from various disciplines can interact and collaborate:
‘[To improve coordination of hospital discharge among partners, the integrated discharge service lead] tried to get their input into how we could change things in their environments, as well as processes … we all stopped for an hour and we did all sorts of things. That was mainly just to try and get them to mix, talk to each other from different organisations … That was helpful, just so that they could then appreciate where each other were … and also for me, it then helps to see how each one works differently.’
(P24, secondary care)
Shared working spaces were identified as facilitating interprofessional relationship building and bonds of trust, which are essential to establishing sustainable, integrated working arrangements:
‘It is about those, literally, working in the same offices. I think it’s also about relationships … if somebody lands on somebody’s door, we’re now saying, “Actually, it might not be the right place for us, but actually we know who can support you and where you can go.”’
(P18, primary care/community services)
The emergence of a shared multidisciplinary team ethos in co-located spaces appeared to create an environment that enabled professionals to challenge one another and engage in difficult conversations about appropriate options for patient care:
‘It took probably six to twelve months, I would say, for us to … [become a joined-up interprofessional team]. What we do now, we go into meetings and we really challenge one another, but we do that from the point of view: “I’m not angry with you … I’m just doing my role.” It was really difficult at first … Now, I think there’s a level of respect there for each other.’
(P11, local government, adult social care)
Translating a vision of integrated working into practice requires stakeholders to agree a plan of action of how they will collaborate:
‘I went to visit [a] hospital down in Somerset … What they did actually … is they went and sat everybody in a basement for a week from everywhere, all of the organisations, and said, “We are not leaving until we’ve come up with a plan to work together.” From what I could tell … it has had a huge impact on them as a county.’
(P24, secondary care)
Theme 2: Where integration occurs
Participants highlighted the multilevel nature of health and social care integration. This study’s data suggest that efforts to drive forward integration are mainly focused on two levels. First, there are micro-level clinical initiatives that aim to join up care at the point of delivery to the patient:
‘The acute trust were really keen on having social work presence at the front door … they ring us [adult social care] and we’ll be down there within … four hours, is the agreement.’
(P11, local government, adult social care)
Another participant commented:
‘ [the GP practice] employs a discharge liaison person to work at … our local hospital … We’ve got that really nice link of somebody … who’s working in the hospital.’
(P18, primary care/community services)
Second, integration takes place at the meso-level in the form of joint arrangements between organisations:
‘We all [adult social care] work quite well with mental health because there’s jointly funded posts … it’s not just looking at things from one angle, it’s looking at it from, I guess, a more holistic point of view. What it means for the person in their life, rather than what it means for the person with their social care and what it means to them with their medical needs. It’s smoother.’
(P12, local government, adult social care)
‘I [senior GP] no longer have just GPs in the practice, but I have paramedics, pharmacists, and nurse practitioners, practice nurses … we’ve got a physio within the practice now — a social prescriber. I think these are major steps forward.’
(P21, primary care)
Operationally, integration requires effective interprofessional collaboration across levels by bringing together different health and social care sectors:
‘So, it’s a really good two-way thing. That unplanned admissions team is absolutely essential to the way we [social prescribing community development service] work, and our working together is really crucial. The MDT [multidisciplinary team] meetings that came alongside that … which was us, the unplanned admissions team, district nurses, our discharge liaison.’
(P18, primary care/community services)
Theme 3: Tensions
A number of tensions in progressing integration were identified. Structural tensions were an inherent feature of the complex multilayered configuration of health and social care:
‘The system is not really well designed to support that integrated working. So, someone in the hospital … They’ll really concentrate as hard as they can on that period, but then once that’s finished, they move on to the next person. Even the language and even the funding structures that support that approach, to a lesser or greater degree, [are] depending on where you are.’
(P30, voluntary sector)
Health and social care are delivered through a series of separate systems, which in itself is an inhibitor of integration:
‘It’s about problem-solving rather than just retrenching to your own bit and lobbing stones. I think culturally, that’s been quite difficult because our systems are set up quite adversarially in a way … everybody’s got their … own little silo to protect.’
(P17, local government)
These separate structures can lead to tensions emerging among organisations. Most frequently, participants identified the tendency of organisations adopting a silo mentality, which emphasises internal priorities over potential benefits arising from external collaboration:
‘There is a huge amount of siloed thinking. The hospitals are very good at protecting their areas of expertise by using NICE [National Institute for Health and Care Excellence] guidance. This was about the hospital making sure they kept control of a particular speciality.’
(P21, primary care)
Organisational self-interest and protectionism, which is an institutional response involving organisations protecting their interests and retaining control over specialisms, was identified as a further barrier to integration:
‘I deal with [a neighbouring hospital trust] quite a bit … The systems there are much slicker because you don’t have this territorialism.’
(P26, secondary care)
Poor communication inhibited integration, both between and within organisations:
‘There needs to be better communication as well, between the GP surgery and between ourselves [adult social care] … when we have safeguarding concerns and there’s a … professionals meeting — sometimes they don’t turn up … and there’s constant arguments between us and the GP practice, and then it just becomes really draining.’
(P9, local government, adult social care)
Another well-documented tension raised by participants was the inability to share records between service providers owing to factors such as systems incompatibility and uncertainty over legal requirements relating to information sharing:
‘We have no integration between these different systems. I think this is everybody’s biggest bugbear. So much time would be saved by being able to dive into each other’s medical records and look at what’s going on.’
(P26, secondary care)
For patients, carers, and families, navigating the series of systems that constitute health and social care provision can be a frustrating challenge:
‘We felt that we were having to speak to so many different people. You’d go to one person and they’d deal with that bit, and the next person would deal with another bit, and another person.’
(P2, carer/relative)
Participants highlighted how tensions among health and social care actors were playing out across spatial scales:
‘So, the other doublespeak is that they want policies … to be developed from the bottom up, but universally it’s always top down because that’s where the funding decisions come from, and until we truly give the money to [local primary care] networks, for them to absolutely decide what their priorities are, it’s never really going to change.’
(P21, primary care)
Some participants argued for more practice- and solutions-based approaches that are localised, and emerge at the clinical and professional levels from empowered individuals with the autonomy to act:
‘Surely somebody in the top tables are trying to figure out how this can happen … sometimes it’s just the people on the ground feeling they’ve got the trust and the freedom and the expectation to come up with ideas when they’re seeing that things could work better.’
(P18, primary care/community services)
Another participant said:
‘We just have to ensure that the teams communicate well and that the teams have a feeling of autonomy. My worry is that this [the integration agenda] has been approached in a rather piecemeal fashion.’
(P21, primary care)