The social care ladder of coproduction
Coproduction is often described as a journey, not a destination. But how do you know where you are on that journey? And what do you need to do to move further?
That is where the ladder of coproduction comes in. Originally adapted from Sherry Arnstein’s 1969 “ladder of citizen participation,” this model has been widely used across health and social care to assess how deeply people are involved in shaping the support they receive.
In simple terms, the ladder illustrates different levels of involvement, from tokenism (where people are included in name only, without real influence) to full collaboration. It helps teams reflect on current practice and identify where genuine coproduction is happening and where there is still work to do.
Why the ladder matters
In social care, it is easy to mistake consultation for coproduction. Asking for feedback, running a resident survey or involving a family member in a meeting might look collaborative, but these actions often sit on the lower rungs of the ladder.
The ladder helps clarify the difference between involvement and influence. It encourages services to move from information sharing and consultation towards shared power and decision-making.
This is especially important in the context of what coproduction means in social care. Without a shared language or framework, it is easy for teams to assume they are working collaboratively when people are still being left out of key decisions.
The rungs of the ladder explained
Here is a typical adaptation of the coproduction ladder, with each rung representing a deeper level of participation:
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Level
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Description
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Example in practice
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1. Informing
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People are told what is happening, but have no input or influence
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A new rota system is introduced with no service user involvement
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2. Consulting
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People are asked for opinions, but decisions are made by professionals
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A feedback form is issued after changes are already made
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3. Engaging
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People are involved in conversations, but their role is advisory
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Residents attend forums but have no role in decision-making
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4. Collaborating
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Decisions are made jointly between professionals and people with lived experience
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Care plans are co-written in partnership with the person
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5. Empowering
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People with lived experience lead the process, with professionals in a supporting role
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A group of residents co-design and lead a new activity programme
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The sixth level—ownership
Some versions of the ladder also include a sixth level — ownership — where people with lived experience lead the service or initiative entirely, supported by professionals in facilitative roles. This is not just a theoretical ideal. In many settings, it is already happening.
For example, some learning disability organisations are now run by people with lived experience who take on strategic leadership, recruitment and policy-making. Peer-led initiatives in mental health are also growing, where service users design and deliver support groups, advocacy services and wellbeing programmes. In supported housing, there are growing examples of co-operative or tenant-led models where residents play a central role in governance and planning.
Reaching this level of ownership requires investment, trust and long-term commitment — but it is possible. And where it happens, the results can be transformative. Services become more responsive, more accountable, and more rooted in what really matters to the people they serve.
Where are you on the ladder of coproduction?
Most services sit at different levels depending on the situation. For example, you might be collaborating on care planning but only consulting on service changes. That is normal — and expected.
The value of the ladder is in helping teams reflect on those variations and look for opportunities to move higher. It is not about perfection. It is about progress.
To help you get started, we have created a user involvement spectrum template you can download. It allows you to map out current activities and assess where each one sits on the ladder. This can be a useful exercise for team meetings, service audits or planning sessions.
Tips for moving up the ladder
Here are five strategies to help move toward more meaningful coproduction:
- Be transparent about influence
One of the biggest barriers to trust is unclear expectations. If you are consulting someone, explain how their input will be used. If decisions are already made, say so. But if there is real scope for shaping outcomes, make that clear.
- Start small but make it real
Pick a process you can co-design from the ground up. For example, revisit how you do reviews or how people contribute to care plans. If you need help designing a better process, try our codesigned care planning canvas.
- Pay attention to power dynamics
It is hard to coproduce when one group controls all the information or resources. Ask whose voice is missing. Ask who gets to decide. Then look for ways to share that power — even in small ways.
- Build confidence and capability
Sometimes staff want to collaborate more but are unsure how. The same goes for people receiving support. Offer training, shadowing or co-facilitation opportunities to build confidence across the board.
- Celebrate and share
When coproduction works well, it boosts morale and builds momentum. Share examples with your wider team. Highlight moments when people were empowered to lead. Show that change is possible.
Moving from surface-level to transformation
There is no quick fix for embedding coproduction. It takes time, support and trust. But using the ladder as a reflective tool can help create a culture where collaboration becomes the norm.
The goal is not to reach the top of the ladder on every issue. The goal is to be intentional. Know what level of involvement is appropriate for each situation — and be honest about it.
In the chapters that follow, we explore the principles that underpin this work, how to align with the latest CQC requirements, and how to bring people into care planning in ways that are practical, empowering and scalable.
