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This is planned policy - i used to tender for LA contracts (in social care) and they started adding in specific questions on what voluntary funds you would be bringing in. Our answers generally included a definition of additionality - that if we did add our own, or raised funds then they would cut the contract value further next time so we would not play along.
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I'm not sure I can write down my thoughts in more detail, only to share that when the charity I prev worked for starting asking questions about how costs could be recouped by encouraging suggested donations from the beneficiaries of our interventions it was clear the system was breaking imo. This was 10yrs ago.
The extent of this is awful https://www.theguardian.com/society/2023/nov/13/charities-near-insolvency-after-subsidising-public-sector-contracts