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Trusts will struggle to achieve agency nurse spending caps


Several trusts have indicated they will struggle to reduce spending on agency nurses in line with the targets set by regulators.

Monitor and the NHS Trust Development Authority last month issued “ceilings” to each provider on the proportion of nursing expenditure they can spend with temporary staffing agencies.

“We’ve been clear we’re not going to be able to achieve it and other trusts are saying similar things”

Karen James

The new targets, which vary depending on the amount trusts have previously spent, came into force at the start of this month. The ceilings vary from 3-12%.

Trusts across the range were asked if they thought they could reduce spending as required. The responses given to Nursing Times’ sister title Health Service Journal suggest trusts currently spending a higher proportion on agency nurses will find it more difficult to meet their ceilings.

Tameside Hospital NHS Foundation Trust spends 6-8% of its nursing expenditure on agency staff and is expected to gradually reduce this to 3% by 2018-19 (see table, below).


Ceiling trajectories

2014-15 nursing agency spend rateCeiling in Q3-Q4 2015-162016-17 ceiling2017-18 ceiling2018-19 ceiling
Under 3%3%3%3%3%
Over 12%12%10%8%6%


Chief executive Karen James said: “It’s going to be impossible to achieve a significant reduction in our spend [and] we can’t achieve the level we are being asked to this year.

“We can make a slight inroad in terms of the ceiling but we’ve been clear we’re not going to be able to achieve it and other trusts are saying similar things.”

Regarding the financial challenge facing the NHS, she said: “Everyone’s been working towards the [safe staffing] guidance and this has increased demand for agency nurses. This all could have been predicted.”

She described the staffing guidance as a “very crude tool” and called for regulators to account for the roles played by allied health professionals in making wards safe.

Karen James

Karen James

Kingston Hospital NHS Foundation Trust, which spends 10-12% of its nursing bill on agency staff, said its ceiling for the rest of 2015-16 “looks achievable”.

However, “next year and future years look unrealistic without any central intervention to change supply in the market”.

A trust spokesman suggested that current immigration rules would hinder progress, pointing out that a cohort of nurses recently recruited from overseas had been declined visas. This has also been flagged as a major concern by other trusts.

“Trusts tell us they are also concerned about the level of bureaucracy these trust level agency spend ceilings involve”

Chris Hopson

George Eliot Hospital NHS Trust, which is expected to reduce its proportion of agency spend from more than 12%, said it has agreed a series of reductions with the TDA but would not say whether these matched the original ceilings.

A spokesman for Bradford District Care NHS Foundation Trust, which is in the 4-5% band, said the trust believes it is possible to meet its targets, but added: “This is challenging and requires numerous responses, some at a coordinated national level.”

An executive at another trust said their organisation had been asked to reduce its proportion of spend to below 3%, and that this was “probably doable”.

Another trust executive said internal analysis suggested it was not possible to meet its ceiling, but regulators said it had to be met regardless.

NHS Providers chief executive Chris Hopson said: “Trusts tell us that while they are doing everything they can to control agency spend, some are finding it difficult to stay within the total agency spend ceiling each trust has been given.

Foundation Trust Network

Chris Hopson

“Faced with a choice of providing safe care or sticking to the limit, trusts are prioritising safe care, as the rules say they should. Trusts tell us they are also concerned about the level of bureaucracy these trust level agency spend ceilings involve.”

The rules say Monitor and the TDA will track spending and may adjust trajectories and ceilings based on the progress of the sector or individual trusts. Trusts can apply for an adjustment to their ceiling in “exceptional circumstances”.

Earlier this week, regulators wrote to trusts to clarify “contradictory” messages issued to NHS providers around financial concerns and safe staffing levels.

The controversial letter stressed that nurse to patient ratios “should not be unthinkingly adhered to”, and suggested allied health professionals could be considered when ensuring wards are staffed appropriately.

On Monday the Department of Health also revealed the cap on the hourly rate the NHS can pay agency staff will be 55% above the pay levels of permanent staff, subject to consultation.


Readers' comments (3)

  • I spent quite a bit of time working with agencies, currently at but have been at Pulse Jobs before too.

    I don't see how some trusts will be able to significantly reduce the amount they spend on agencies without seriously compromising on the quality of care. I would much rather have a high wage bill and great care than vica versa.

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  • It's a disaster waiting to happen. What nurse is going to join the NHS and have to start on a bottom band 5 as a staff nurse earning just over £10 an hour ? As well as paying professional fees of £120 a year plus union fees and now there's talk of stopping enhancements ...not exactly an attractive offer! I can go work as a till girl at aldis for 50p less an hour!!!

    It's insulting that a profession that people study at an academic level to achieve the title registered nurse is not treated with the same respect as other professions.

    Unless the government realises the valuable input nurses provide and pay them their worth, nursing will become a dying profession.

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  • We, as nurses need to become active regarding these changes. For too long we have allowed ourselves to be beaten down.

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