A Devon council says it is still facing a serious shortage of social workers.
Managers at Plymouth City Council's Social Services say that in certain areas they only have two thirds of the staff they need.
The mental health service, for example, is 10 people short of its full complement of 29 staff.
The city is trying to address the issue with a review of pay scales and the introduction of a bursary scheme.
Mental health manager Ian Jane says a number of factors are being reviewed to attract and retain staff.
"We've got to look at things like career structure and the salary structure," said Mr Jane.
"We have to make absolutely certain we are rewarding those staff who are in this very onerous job."