From Foster Care to Adoption and Guardianship: A Twenty-First Century Challenge

For nearly four decades, child welfare policy and practice have focused on the achievement of legal permanence for children in foster care. Although federal child welfare policy has resulted in the movement of children from state custody to legally permanent adoptive or guardianship families, little is known about the quality and enduring nature of these placements. A significant challenge of the twenty-first century child welfare system is how to ensure the well-being of children currently living with adoptive parents or guardians. This paper discusses child welfare policy and trends related to post-permanency well-being, including the decrease in Title IV-E foster care caseloads nationwide and the simultaneous increase in Title IV-E adoptive and guardianship caseloads. We highlight the needs of a twenty-first century child welfare system, including increased federal efforts to ensure child permanence and well-being after legal adoption or guardianship has been achieved, as well as more rigorous longitudinal and interdisciplinary research focused on the post-permanency adjustment of children and their families.     

Broadening Our View

Summary

The growth in child welfare caseloads and the increasing use of kinship foster care has raised new questions about effective permanency planning. The majority of children in kinship foster care are children of color and have been less likely to exit the custody of the child welfare system than children placed in traditional foster care. Permanency planning which ensures the long-term protection and well-being of children from diverse cultural backgrounds requires a broad view of family, ongoing striving for cultural competence, collaboration between the formal child welfare system and the kinship systems of children in state custody, and a long-term view of permanency planning and child-rearing that builds on the case-management capacities of kinship networks to support permanent plans, looks beyond the child's exit from state custody, and helps families and larger kinship systems make long-term plans for the protection, permanence, and well-being of children.     

Family-centered child welfare services: new life for a historic idea

The recent emphasis on permanency planning in child welfare has strengthened the resolve of policy makers and service providers to serve the families of dependent children better. Permanency planning asks child welfare services either to reunite children in care with their families of origin or to find permanent substitute families for children, but the goal of a permanent family for every child has been much easier to articulate than it has been to achieve.     

Pathways to permanence in England and Norway: A critical analysis of documents and data

The English language term ‘permanence’ is increasingly used in high income countries as a ‘short-hand’ translation for a complex set of aims around providing stability and family membership for children who need child welfare services and out-of-home care. From a scrutiny of legislative provisions, court judgments, government documents and a public opinion survey on child placement options, the paper draws out similarities and differences in understandings of the place of ‘permanence’ within the child welfare discourse in Norway and England. The main differences are that in England the components of permanence are explicitly set out in legislation, statutory guidance and advisory documents whilst in Norway the terms ‘stability’ and ‘continuity’ are used in a more limited number of policy documents in the context of a wide array of services available for children and families. The paper then draws on these sources, and on administrative data on children in care, to tease out possible explanations for the similarities and differences identified. We hypothesise that both long-standing policies and recent changes can be explained by differences in public and political understandings of child welfare and the balance between universal services and those targeted on parents and children identified as vulnerable and in need of specialist services.     

Predictors of foster care exits to permanency: A competing risks analysis of reunification, guardianship, and adoption

Although foster care is intended to be temporary, and policy explicitly requires permanency outcomes, many children experience lengthy stays and exit foster care without a permanent family. This study sought to identify which child and placement characteristics were important predictors of exit to three types of permanency outcomes: reunification, guardianship, and adoption. A sample of 3351 children who entered foster care in 2006 was observed for 30 to 42 months. Permanency outcomes were analyzed using competing risks survival analysis. Children exited foster care to different types of permanency at different rates and frequencies. Reunification occurred most quickly and frequently. Guardianship was second in terms of median duration but third in frequency. Adoption was the second most common exit but had the longest median duration. One in four children remained in foster care or exited without permanency. While patterns varied by type of permanency, three major categories of important predictors were identified: 1) demographic characteristics of age at entry and race, 2) clinical needs related to children's disabilities and mental health problems, and 3) continuity and connections represented by kin placements, sibling placements, early stability, and absence of runaway events. Implications for practice, policy, and research are discussed.     

Facing Time Limits

Abstract

With reauthorization of the 1996 Personal Responsibility and Work Opportunity Reconciliation Act (PRWORA) on the horizon, policy makers need to have a sound understanding of the act's consequences for children and families. In contrast to earlier studies, the present study quantifies the impact of a 24-month state imposed welfare time limit on foster care placements. It also examines the impact of a “hardship” provision that temporarily excuses select families from meeting a two-year time limit on foster care placements in Nevada. In order to determine how these factors, in conjunction with other relevant welfare experiences and personal factors, affect parent-child separation, a multivariate logit model was tested. Key findings reveal that families who have more months counted toward their time limits also are more likely to have at least one child removed and placed in foster care. On the other hand, hardship families are not more likely to have their children placed in foster care than non-hardship families. The findings lend support to the notion of providing family-centered casework services to those identified to be at risk of approaching their welfare time limits. The findings also lend support to inter-agency collaboration between TANF and child welfare systems.     

The impact of foster care privatization on multiple placements

The purpose of this study was to assess the impact of foster care privatization policy on multiple placements in Florida's foster care system. A variant of the interrupted time series design allowed for an assessment of privatization policy within 282 data points (six years of data nested in 47 counties). Results from hierarchical linear analysis models identified a significant effect for privatization while controlling for a major alternative explanation. Specifically, the percent of children in fewer than three placements was significantly lower in the post-privatization years than in the pre-privatization years. This effect varied across counties. Line graphs revealed a variety of trends among providers, which may explain the variation of privatization's effect across counties. These results have implications for policymakers seeking to address the goal of permanence and for child welfare administrators involved in the implementation of privatization policy.     

Placement stability in non-kinship foster care: variables associated with placement disruption

In Spain research has been conducted into the outcomes of foster care, although there is a need for further analysis, especially as regards the variables associated with placement disruption. In 2008 (T1) was collated information on all foster placements that were registered in three Spanish provinces. In 2014 (T2), data were gathered by reviewing the children's case notes and through interviews with the social worker responsible for each case. The resulting sample comprised 104 non-kinship foster children in long-term foster care who were being fostered in 86 families. The results obtained at T2 showed that the percentage of children who were still living with the same family (68.3%) was greater than the proportion of children whose circumstances had changed (31.7%). The social workers considered that placement disruption had occurred in 27 of the 33 cases. One of the main finding was placement disruption was associated with the older age at the time of being fostered and the emotional relationship quality between children and foster carers. A regression analysis showed that low levels of warmth and communication in the relationship between child and foster carers were shown to be a predictor of placement breakdown. Implications for practice are discussed.     

Permanence for disabled children and young people through foster care and adoption: A selective review of international literature

Children who have been removed from their parents need stability and permanence; this is as true for disabled children as it is for others. Yet many children are subject to extended periods of uncertainty and instability. Growing attention has been paid to the need to achieve permanence within a timescale which meets children's needs. As disabled children are over-represented in looked after (in care) populations it is especially important that their needs are considered when formulating policy and practice in this area.This review of literature covers international material related to stability and permanence for disabled children, in particular permanence achieved through fostering and adoption. A scoping method was used to identify and analyse a broad range of material. Ninety texts were included in the review, including material from the US, the UK, Canada, Australia, China and the Netherlands. Empirical research included quantitative, mixed methods and qualitative studies. Other sources included literature reviews and a small number of research-based ‘think pieces’ and briefings.Disabled children often have permanence outcomes and experiences which differ from those of other children; most often they are disadvantaged by systematic features of services and by the latent disablism of decision-makers, professionals, carers and potential carers. The findings also show that disabled children are not a homogenous group and that characteristics such as age, gender, ethnicity and impairment type show complex relationships with permanence through adoption and foster care.Important gaps in current knowledge are identified, including disabled children's views and experiences in relation to achieving permanence. Several areas of policy and practice are highlighted where effort to improve permanence needs to be made. These range from tackling negative professional attitudes about the prospects of placing disabled children to further development of non-traditional approaches to the recruitment of foster carers and adopters.     

Making parents pay: The unintended consequences of charging parents for foster care

Most families in the child protective services system also interact with the child support enforcement system. This study exploits a natural experiment in Wisconsin, created by the state's large regional variation in child support referral policy, to estimate a potentially important effect of child support enforcement on the duration of out-of-home foster care placement. The effect we examine is whether requiring parents to pay support to offset the costs of foster care delays children's reunification with a parent or other permanent placement. We find evidence of this unintended effect, which is important not only because longer foster care spells are expensive for taxpayers, but also because extended placements in foster care may have consequences for child well-being. Our results highlight the potential importance of cross-systems analysis and the potential consequences when the policies and fundamental objectives of public systems are inconsistently coordinated. We discuss the implications of our findings for child support and child protective services policy.     

Connective complexity: African American adolescents and the relational context of kinship foster care

Attempts to address racial disproportionality in child welfare must include a focus on the benefits and challenges facing children in kinship care. African American children not only are overrepresented in the child welfare system, but also are placed disproportionately in kinship foster care. Using a sample of 18 African American adolescents ages 11 to 14, this article explores how the relational context of care experienced by adolescents in kinship foster care differs from that of adolescents in nonkinship foster family placements. Findings are presented regarding the stability of relationships as well as complex role dilemmas experienced by kinship youth as they relate to caregivers and birthparents in the child welfare context. Implications are given for practice with kinship families.     

Family to family: reconstructing foster care in the US

The public child welfare system in North America is faced with growing deprivation, rising numbers of children who need out-of-home placements for increasingly lengthy periods, and a shortage of foster carers. The Family to Family initiative offers public agencies funds and tools to help them strengthen family support services within the communities from which children enter the system, improve the quantity and quality of neighbourhood-based foster carers and develop the capacity to collect and analyse outcome data.     

Post-permanency discontinuity: A longitudinal examination of outcomes for foster youth after adoption or guardianship

For over two decades, federal policies and case practices in child welfare have shifted to prioritize legal permanence for children in foster care, and increasing numbers of children have been placed in permanent adoptive or guardianship homes. Despite this change, little research has examined the long-term stability of legally permanent adoptive and guardianship homes for former foster youth. This study used child welfare administrative records to track a population of 51,576 children in Illinois who exited foster care through adoption or guardianship for ten years or until the age of majority. Univariate and bivariate analyses were conducted to describe the population, and a multivariable Cox proportional hazards model was estimated to examine the relationship between child age and discontinuity, controlling for several pre-placement characteristics. Results indicated that the vast majority (87%) of children did not experience post-permanency discontinuity. In addition, African American children and children who had more moves in foster care had a higher hazard of discontinuity, while children placed with siblings and children who spent three or more years in foster care had a lower hazard of discontinuity. Study findings also indicated that prevention efforts should be targeted at families with adolescents. This study contributes significantly to the scant literature on long-term outcomes for adoptive and guardianship families, and suggests several areas for future research.     

The rich and exacting role of the social worker in family foster care

This article is about the role of the professional social worker in a child placing agency. It emphasizes the worker's central role in coordinating or managing the various facets of family foster care.Many aspects of family foster care are discussed, with emphasis upon permanence and the tasks of the social worker with the respective participants. The article briefly examines these activities, such as working with the child, the birth parents and the foster parents, within the contexts of the primary mission which is to restore family relationships or to help the child to find and build new ones.Mr. Terpstra is employed by the U.S. Children's Bureau where he serves as a specialist in family foster care, child care insittutions and licensing of children's services.     

Reunification of foster children: Factors associated with reunification outcomes in Flanders and the Netherlands

Although a significant number of foster children eventually return to their birth parents, evidence-based models for permanency planning are scarce, and there is a lack of clear decision-making criteria for reunification. This study aimed to establish further knowledge about reunification. Both reunification pace and factors which are associated with reunification were examined. The focus was on factors related to the foster child, the birth parents, the foster parents and the foster placement, and reasons for removal. Case file analysis was performed for 580 Flemish and Dutch foster children ages 0–18. Cox regression analyses showed contact with birth parents to be most strongly associated with reunification. Moreover, particularly placement related factors (e.g., legal framework, additional support services, contact with birth parents) increased the likelihood of reunification. Furthermore, over a period of six years approximately 15% of foster placements led to reunification notably during the first 2.5 years of placement. Policy makers and foster care professionals are therefore encouraged to timely aim for permanency planning. Reunification efforts should be planned from the start of the foster placement. If subsequently reunification proves not feasible, permanency should be secured within the foster family.     

Achieving permanency for LGBTQ youth

This article brings together two significant efforts in the child welfare field: achieving permanence for youth in out-of-home care and meeting the needs of lesbian, gay, bisexual, transgender and questioning (LGBTQ) youth. During the past several years, a national movement has taken place to assure all children and youth have a permanent family connection before leaving the child welfare system; however, LGBTQ youth are not routinely included in the permanency discussions. At the same time, efforts in addressing the needs of LGBTQ youth have increased, but permanency is rarely mentioned as a need. This article offers models of permanence and practices to facilitate permanence with LGBTQ youth and their families. It also offers a youth-driven, individualized process, using youth development principles to achieve relational, physical, and legal permanence. Reunification efforts are discussed, including services, supports, and education required for youth to return to their family of origin. For those who cannot return home, other family resources are explored. The article also discusses cultural issues as they affect permanence for LGBTQ youth, and, finally, addresses the need for ongoing support services to sustain and support permanency.     

Maternal foster families provide more stable placements than paternal families

The use of kinship families to provide foster care has been increasing due to changes in legislation and the hope that it will provide better quality placements, but there has been little consideration of differential outcomes based on sub-types of kin. Using data from one Ontario, Canada, child protection agency we compared the frequency and stability of placements with maternal versus paternal kin. We found that maternal relatives provided placements much more often than paternal kin and this was most striking with single grandmothers. 90% of genetically related kinship caregivers were grandparents or other equally close kin. Maternal and paternal kin placements had similar durations, but maternal placements ended significantly more frequently by the child returning home or obtaining a permanent placement, whereas paternal placements more often broke down. A Cox proportional hazards analysis, controlling for child sex, age, reason for placement and caregiver attributes, showed that paternal kin placements were more than twice as likely to break down as maternal kin placements, within a given interval. We discuss whether placement stability should be considered a proxy for placement quality and policy implications, and we comment on aspects of assessing prospective placements.     

Studies of the maintenance of subsidized foster placements in the Casey Family Program

The Casey Family Program provides a planned, long-term approach to subsidized foster care for the underachievers of the child welfare system. Its concept is a marriage of what foster care professionals know about effectively helping children and what managers know about effectively running organizations. The purpose of our studies of The Casey Family Program was to determine whether the outcomes of its foster placements were predictable from factors that could be known, at least in principle, at the time the placements were made. We built statistical models of placement maintenance based upon characteristics of (a) the foster child; (b) his or her biological family; and (c) the foster family. We used two main sources of data to construct models: archival material on the child and his or her biological family, and caseworker ratings of various aspects of the child and his or her foster family. Information was derived from a sample of 51 children served by the Montana Division of The Casey Family Program to build the models, which in general provided accurate predictions of placement outcomes. The models were then cross-validated with a sample of 55 children from the Idaho Division. There was a substantial amount of shrinkage in the variance accounted for in the cross-validation sample, but outcomes remained largely predictable. To determine whether predictions of placement outcomes could be based upon brief assessments of factors that could be evaluated at the time placements were made, a third study was undertaken. The results of that study implied that ratings of salient characteristics of foster children and foster families based upon as little as a single day's observation could be used to effectively predict placement outcomes. Several aspects of these studies deserve special emphasis. First, the research confirmed that the children served by the Montana and Idaho divisions of TCFP were among the underachievers of the child welfare system whom Jim Casey desired to reach. It also confirmed that the Montana and Idaho divisions were doing an effective job of serving those children. Their placements were generally stable and both foster children and foster families were rated as functioning at levels that ranged from acceptable to good.(ABSTRACT TRUNCATED AT 400 WORDS)     

Modelling the initial placement decision for children received into care

Initial placements of a cohort of 93 children received into the care of an English local authority over a 3-month period are examined. Sixty-five of the children were immediately placed in a foster home, 20 were placed in a residential home, 4 were received into care in hospital, and 4 remained home on trial. The research reported here focusses on the 85 children initially placed in either a substitute family home (a foster placement) or a residential home. Logit analysis is used to examine the pattern of initial placements. A clearly consistent pattern of placement emerges and a small number of factors explain or predict the initial placement decision. These factors include such child characterstics as age and health, family size and accommodation, and previous care experiecne of a child and his or her siblings.