'The Tip of the Ice Berg': Children's Complaints and Advocacy in Wales--An Insider View from Complaints Officers

This paper is based on findings of a Welsh Assembly Governmentfunded review of children’s independent advocacy servicesin Wales with reference to their involvement in complaints madeby children, or by their parents or carers on their behalf,about local authority social services. It draws, primarily,upon qualitative interviews with local authority children’scomplaints officers, whose task is to receive complaints orconcerns, field these to appropriate social services staff,maintain oversight of their progression and keep complainantsinformed of developments. The paper describes the challengesthat complaints officers perceive children encounter in movingcomplaints forward, especially in a context where independentadvocacy services are involved and where these services areviewed with some suspicion by social services staff. It suggeststhat complaints officers play a pivotal part in managing thesometimes contested and complex interface between service providerand child and may do so from a position of limited authorityand influence. The role of complaints officers in engaging withcomplainants and their advocates, and with those colleaguesimplicated in complaints, has rarely been the topic of research.This paper provides accounts from these key staff that helpilluminate the tensions and difficulties that can enter thechildren’s complaints process.     

More than a piece of paper?: Personal education plans and ‘looked after’ children in England

This paper reports on research into personal education plans (PEPs) for ‘looked after’ children (children in care) in one large county local authority in England. PEPs were introduced by guidance from the Department for Education and Employment and Department of Health in 2000. The fieldwork for this research began two years after this guidance was published. The research findings show that although social services staff and teachers are critical of specific aspects of PEPs, they have helped to raise the profile of the educational needs of looked after children in the local authority studied. They have provided a forum for social work and education professionals to meet in the interests of particular children. Key problems relate to practical issues: ensuring social workers and teachers feel able to fulfil their expected roles in relation to the education of looked after children; making the system focus on meeting the needs of children as well as practitioners; difficulty in meeting specified timescales; more meaningful, constructive and sensitive involvement of children in the process of producing and reviewing PEPs. The broader issue, however, is about the ability to plan the education of looked after children. Additional barriers to planning were particularly apparent in residential care and specifically within secure accommodation.     

The impact of parental incarceration on children's care: identifying good practice principles from the perspective of imprisoned primary carer parents

Parental incarceration has wide‐ranging impacts on families. One key effect may be disruption to the care and legal custody of children, yet few studies have examined processes and outcomes relating to care planning for children of prisoners. This paper presents findings of interviews with 151 primary carer prisoners in two Australian states which aimed to address this research gap. The study examined care planning for children upon parental arrest, sentencing and imprisonment, stability of care arrangements and primary carer prisoners' involvement and satisfaction with care planning. Around one third of prisoners had discussions regarding children's care arrangements at arrest and imprisonment, although the issue was more commonly raised at sentencing. While there was much variation in the stability of care arrangements, children placed in out‐of‐home care experienced the most instability. A minority of prisoners reported being involved in care planning and decision‐making for children upon imprisonment, and around one third rated care planning process poorly. Prisoners were more satisfied with care planning when there were fewer movements of children, where prisoners felt involved with decision‐making, and when police officers, lawyers and corrections staff inquired about the welfare of their children. Implications for policy and future research are discussed.     

Placed and paid for: a national overview of the use of private and voluntary day care facilities for children in need

This paper examines day care provision for children in need, who are placed and paid for by local authorities in non local authority services. The England and Wales Children Act 1989 placed a new duty on local authorities to provide day care services for children who are defined as being 'in need', and the guidance accompanying the Act encourages the use of independent sector services for this purpose. This paper brings together the main findings from a survey of all English local authorities, an analysis of local authority documentation and secondary analysis of government statistics to provide a national overview of the use of sponsored day care places for children 'in need'. It concludes that the majority of English local authorities value the contribution of independent day care providers, but that there are potential problems with adopting a market approach to welfare services, such as low levels of training and support for such providers, and a shortage of suitable service provision in the areas where they are most needed. These require further consideration by policy makers and local authorities.     

Children's Voices: The Views of Vulnerable Children on Their Service Providers and the Relevance of Services They Receive

This paper describes and analyses the views of vulnerable childrenof eleven years and under on the relevance of services theyreceived. The two research questions posed were, first, whatare effective practices for engaging with vulnerable children;and, second, how can the voices of vulnerable children be usedto influence the development of policy? The first question wasaddressed through a systematic review of existing literatureon effective strategies for interviewing vulnerable childrenand revealed that few studies that focus on interviewing youngchildren are designed to address effectiveness. As yet, notall young children are asked for their views by those makingdecisions about their lives, though their involvement increaseswith age. The second question was addressed through focus groupsand interviews which revealed that children hold many validviews related to their roles and relationships with serviceproviders and decisions being made concerning their lives. Itwas concluded that whilst children’s lived experienceof services they receive could contribute to the creation ofmore democratic communities in which children and their familiesparticipate, it remains to be seen whether the new Green Paper,Every Child Matters (DfES, 2003), increases their sense of autonomyor merely extends the degree to which they are controlled.     

Putting the Children Act Independent Person Procedure under the Spotlight

The Children Act 1989 required local authorities to appoint independent people to participate in their complaints procedures. The Department of Health has concentrated largely on monitoring these newly established procedures. In contrast, very little guidance has been given about the role of independent people. Nor has there been much published research in this area. This paper is based on a study of the response of two neighbouring local authorities. The aims were to discover how these authorities had interpreted the imprecise guidance from the Department of Health, and thereby to analyse the application of principles of independence within complaints procedures. The findings showed how a "pool" of independent people had been selected, trained and employed to participate in Children Act complaints procedures. Analysis of this system raises fundamental questions about the potential of this system to provide the kind of objective representation intended to be helpful to complainants. It also contributes to the debate about the most effective ways of safeguarding the welfare of children and young people by providing them with an accessible complaints procedure. The study identifies areas for future research, including the nature of complaints and the "practice wisdom" being acquired by independent people.     

Returning children home from care: What can be learned from local authority data?

International Human Rights and child rights conventions as well as U.K. wide legislation and guidance require that children in care should be returned home to one or both parents wherever possible. Reunification with parents is the most common route out of care, but rates of re‐entry are often higher than for other exit routes. This study used 8 years of administrative data (on 2,208 care entrants), collected by one large English local authority, to examine how many children were returned home and to explore factors associated with stable reunification (not re‐entering care for at least 2 years). One‐third of children (36%) had been reunified, with adolescent entrants being the most likely age group to return home. Three quarters (75%) of reunified children had a stable reunification. In a fully adjusted regression model, age at entry, being on a care order prior to return home, staying longer in care, being of minority ethnicity, and having fewer placements in care were all significant in predicting chances of stable reunification. The results underline the importance of properly resourcing reunification services. The methods demonstrate the value to local authorities of analysing their own data longitudinally to understand the care pathways for children they look after.     

A Triumph of Hope over Experience? Modernizing Accountability: The Case of Complaints Procedures in Community Care

Complaints procedures are one component of maintaining and improving the quality of community care services. However, how effective are they in providing a means of redress for service users? This article presents the findings from four research projects, which included complaints procedures in their survey of service users’ experiences of community care provision. These findings are compared with the outcomes of similar research projects. The article concludes by evaluating the Department of Health’s consultation proposals on complaints procedures, and other policy documents, in the light of the research findings.     

When Things Go Wrong: Being an Independent Person under the Children Act 1989 Complaints Procedure

The introduction of market principles into public services in the 1990s meant that British local authorities were required to develop complaints procedures. In the case of services for children and families, the Children Act 1989 required the appointment of an "independent person". This article describes the findings from a research study conducted in 1999. A total of nineteen independent people from a range of London boroughs participated. It was found that young people themselves rarely use this system designed to protect their rights. As "sole traders" in adversarial situations between social services personnel and complainants, the independent people were constantly negotiating their position. Depending upon the issue, they are required to move skilfully between conciliation and formal investigation. The findings will be useful to local authorities using independent people, and to the independent people themselves who are largely unsupported in their roles.     

Foster children's experiences and expectations concerning the child‐welfare officer role—Prerequisites and obstacles for close and trustful relationships

The question of whether the Swedish social services are fulfilling their obligation to monitor and support children in foster care is attracting increasing attention. The importance of closeness and trust between children and their child‐welfare officers has been highlighted in particular. The aim of this article is to study foster children's experiences and expectations concerning the role of the child‐welfare officer, and how these constitute prerequisites for, and possible obstacles to the officers developing close and trustful relationships with the children under prevailing institutional conditions. Data from our evaluation of a national pilot project with supervision representatives provide the empirical basis. Our theoretical point of departure is that the relationship between the child and the child‐welfare officer is affected by the officer's role—a role that is negotiated under the prevailing institutional conditions and in interaction with the children's experiences of and expectations about that role. The results show that most children emphasize that the relationship with their officer is negatively affected by a lack of time, availability, and trust. It is also weakened by the children's general expectation that child‐welfare officers only act in their official role, a role that is associated with a formal and distanced relationship.     

The social services response to unaccompanied children in England

In England, social services departments have a duty to provide care and protection to unaccompanied asylum seeking children from the point they arrive in the country. In recent years, research studies have identified a number of practice and policy issues of concern regarding the social services response to unaccompanied children. This paper focuses on three broad issues that emerge from the literature. The paper explores research concerns associated with (i) the referral and assessment process, (ii) the use of the child welfare legislative framework, and (iii) a number of issues arising from the provision of placements and other support offered to unaccompanied children. The findings of the research reviewed demonstrate that there are indeed clear grounds for concern. However, this paper argues that the evidence base is relatively weak and that as a result we know very little about the nature and context of the social work response to this group of children and young people.     

Children's participation in reviews and planning meetings when they are 'looked after' in middle childhood

This paper is based on a study of participation by children aged 8–12 in decisions when they are 'looked after' by local authorities. The research established that more children in this age group are attending reviews and planning meetings, but that the likelihood of their attendance varies with age and other factors. The paper explores reasons why some children are more likely to attend meetings than others, and uses material from interviews with children and adults to understand the part which children take in meetings when they do attend. The attendance of children at review meetings has exposed some ambiguity in their purpose, and the paper argues for a re-evaluation of the place of reviews in relation to other processes. It concludes by calling for a combination of rights-based and relationship-based approaches to empowering children.     

Integration and Targeting of Community Care for People with Severe and Enduring Mental Health Problems: Users' Experiences of the Care Programme Approach and Care Management

Correspondence to Professor John Carpenter, Director, Centre for Applied Social Studies, University of Durham, Elvet Riverside II, Durham DH1 3JT, UK. E-mail: J.S.W.Carpenter{at}dur.ac.ukJ.S.W.Carpenter@dur.ac.uk Summary We report the experiences of different models of community careof random samples of 262 people with severe and enduring mentalhealth problems living in four districts in the north of England.The districts were characterized in terms of the extent of (1)integration between the health service-led Care Programme Approach(CPA) and social services Care Management, and (2) targetingof services on people with severe mental health problems. Themajority of service users felt involved in planning their owncare and considered that they had choice in their care and treatmentwhen in the community, but not in hospital. Although all theseusers were formally subject to the CPA, the proportions of usersin the districts believing they had a written care programmeranged between 37 per cent and 60 per cent. Of these, the greatmajority were very positive about their care programmes andfelt that they were being helped to become independent. Theseresults were replicated when 87 per cent of the original samplewas re-interviewed six months later. There were significantdifferences between the four districts and evidence that userspreferred an integrated health and social care service. In addition,a higher proportion of users in inclusive districts were satisfiedcompared to those in targeted districts. Notwithstanding thesepositive findings, there is still considerable room for improvementin relation to the involvement of family carers and the provisionof adequate information about prescribed medication and makingformal complaints.     

The Role of the Private Market in Day-care Provision for Children in Need

This article examines the role that the private day-care market plays within the range of day-care services offered by 12 local authorities for children in need. It examines how local authorities have developed their use of private day-care services generally, and goes on to discuss three models of sponsored childminding practice which were identified in the study. Although authorities have generally been innovative in developing their work with independent day-care providers, if they are to continue to purchase good quality services for children in need they need to ensure that private day-care providers receive adequate levels of training and support, and that steps are taken to address existing gaps in both private and local authority day-care services.     

Linking children's social care data to information about their care proceedings to understand the use of care proceedings and their effects on parents,children and local authorities.

Care proceedings are the most powerful child protection intervention; local authorities make applications for over 20,000 children each year in England and Wales. The Department for Education holds two administrative databases of children who receive services, for children looked after and children in need. These databases do not record the use of care proceedings. Data linkage is a powerful tool for revealing patterns not visible from a single data set; the Outcomes for children before and after care proceedings reform study linked these administrative records with a research database of care proceedings to examine children's care and service journeys associated with care proceedings. The researchers also devised a simplified method for use by local authorities with their own records and tested this with North Yorkshire County Council. Analysis of the linked data reveals how care proceedings are used and the impact of care proceedings on care demand. It provides the basis for analysis of cohorts of children subject to proceedings and feedback to social workers, children's guardians, and the judges and lawyers on their decisions and children's outcomes.     

Motivation to volunteer among senior center participants

Senior centers in the United States play a vital role in the aging continuum of care as the focal points of a community-based system of services targeting independent older adults to promote their social integration and civically engagement. Although several studies have evaluated the diversity of senior center programs, demographic characteristics of participants, and benefits of participation, very few have explored motivations to volunteer among participants. Many senior centers rely on a cadre of participants who volunteer there to assist with programs and meal services. However, a systematic examination of volunteering interests and the rationale for volunteering among senior center participants has been missing from the literature. This mixed-methods study, conducted at a large suburban senior center, explores the interests and motivations of volunteerism among the participants. The study found that there was limited interest in volunteering among senior center participants. Those who were motivated to volunteer wanted to do so in order to stay connected with their community. There was strong interest in volunteering for single events or projects rather than a long-term commitment. Implications for senior centers are discussed.     

Social Work Practices: silences and elisions in the plan to 'transform' the lives of children 'looked after' in England

This paper critically examines the government's proposals for the reform of services for children in public care, or 'looked after', in England and, more specifically, the proposal to set up Social Work Practices (SWPs, see Note 1 ). These are envisaged as groups of social workers, commissioned by but independent of local authorities. The changes have been mapped out by a Green Paper Care Matters: Transforming the Lives of Children and Young People in Care published in October 2006, a subsequent working group report, and Care Matters: Time for Change , a White Paper published in June 2007. This was followed, in November, by the publication of the Children and Young Persons' Bill. It is argued that there are, at least, two issues which could be focused on by those seeking to counter moves to introduce SWPs. First, the enhanced role being given to private sector providers because, it is maintained, public services provided by local authorities are unambiguously 'failing' children. Second, the fact that the views of parents and 'looked after' children are mostly excluded from the dominant and 'official' discourse on SWPs.     

Numbers of children looked after in England: a historical analysis

This paper is an analysis of the relationship between policy, practice and the rates of children looked after by local authorities in England. It examines the trends in the numbers of children looked after by local authorities in England over a period of approximately 40 years. The increase in children looked after in the decade after 1994 is shown to be the result of fewer children entering care, but those that do tend to stay longer. This two-part dynamic appears to have been the underlying determinant of the care population over a long period of time. The fact that time spent in care is such a key factor suggests that planning for children who are already looked after is a crucial determinant of the numbers in care. However, it is argued that poorly developed family support services limit current options for reducing the size of the care population. A range of effective family support services could potentially have an impact on the number of children in care in three ways: by helping to maintain more children within their families; by identifying those children who need care earlier; and by improving the chances of some children being successfully returned home.     

Identifying and implementing pathways for organizational change – using the Framework for the Assessment of Children in Need and their Families as a case example

Change within social work organizations is incessant. This has implications for senior managers and elected members who have to manage these changes. The Department of Health has introduced new guidance entitled the Framework for the Assessment of Children in Need and their Families ( Department of Health 1999a ). The guidance is based on a number of principles that require an attitudinal shift in terms of assessing ways of safeguarding children and promoting their welfare. This paper describes strategic approaches to the effective introduction of the framework within social services departments and other child welfare organizations. Two models have been adapted from practice: the actual framework for assessing children and their families and the Protchaska and DiClementi model of change. These models complement each other. The adapted Assessment Framework provides a structure to assess the readiness of the organization for the implementation of the new framework. The model of change provides a schema for planning, implementing and reviewing the introduction and operation of the Framework for the Assessment of Children in Need and their Families. Although the focus of the paper is the introduction of the new guidance , the models can be utilized by senior managers in any social care organization who are facilitating major changes in the organization.