Sponsored Places: The Use of Independent Day-Care Services to Support Children in Need

Correspondence to: Dr June Statham, Project Director, Thomas Coram Research Unit, 27-28 Woburn Square, London WC1H OAA Summary The implementation of the Children Act 1989, with its emphasison family support through the provision of non-stigmatizinglocal services and on local authorities working in partnershipwith voluntary and private service providers, has given a newfocus to the use of independent day-care services to supportchildren in need and their families. This article uses datafrom research in England and Wales on the implementation ofthe Children Act as it affects early years services, to considerthe extent of sponsored day-care, the circumstances in whichit is used, and the issues it raises for local authorities,independent day-care providers and the children themselves.     

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.     

Micro‐provision of Social Care Support for Marginalized Communities – Filling the Gap or Building Bridges to the Mainstream?

As English social care services reconstruct themselves in response to the personalization agenda, there is increased interest in the contribution of micro‐providers – very small community‐based organizations, which can work directly with individuals. These micro‐providers are assumed to be able to cater for the ‘seldom heard’ groups which have been marginalized within mainstream social care services. This article reviews recent literature from the UK published in peer‐reviewed journals from 2000 to 2013 on support provision for people with protected characteristics under the Equality Act 2010. It considers the marginalising dynamics in mainstream, statutory social care support provision, and how far local community, specialist or small‐scale services are responding to unmet need for support and advice among marginalized groups. The review found that there is a tradition of compensatory self‐organization, use of informal networks and a mobilization of social capital for all these groups in response to marginalization from mainstream, statutory services. This requires recognition and nurturing in ways that do not stifle its unique nature. Specialist and community‐based micro‐providers can contribute to a wider range of choices for people who feel larger, mainstream services are not suitable or accessible. However, the types of compensatory activity identified in the research need recognition and investment, and its existence does not imply that the mainstream should not address marginalization.     

Towards the Disintegration of Child Welfare Services

This paper examines market issues in the provision of children's services in the light of the changing role and practice of local authorities contracting for welfare services. In adult services, where there has been a legal requirement to reorganize on market lines, the services have had to modify some of their earlier contracting practices to take account of the complex requirements of health and welfare services and it is argued that relational contracting offers a more appropriate paradigm for these. Following the implementation of the Children Act 1989, although not a requirement of the Act, many of the organizational systems in relation to markets, originally developed for adult services, have been adopted for children's services. Two areas of services for children, day care and fostering services, are discussed in order to demonstrate that these contracting systems are inappropriate and often dysfunctional for the children concerned. It is argued that there is a widening gap between contracting systems in adult and children's services which needs to be addressed. In general, it is concluded that the philosophies of the market place are flawed when applied to children's services.     

From Official Supervision to Self‐monitoring: Privatizing Supervision of Private Social Care Services in Finland

In October 2011, a new Act on Private Social Care Services came into force in Finland. The Act included a provision on a ‘self‐monitoring plan’. According to the provision, providers of private social care services are required to draw up a self‐monitoring plan and to follow its realization. The plan must be kept publicly on view so that clients and their relatives can also keep an eye on the realization of self‐monitoring. In this article, self‐monitoring is first explained and then briefly analyzed against the background of a wider theoretical discussion on accountability. It is argued that the introduction of client involvement in the supervision of private social care services represents a new mechanism of accountability that is typical of the Post‐Keynesian welfare state. Because public authorities are no longer able to supervise the growing number of private social care service providers, the responsibility has been partly shifted to service providers themselves as well as to clients. However, it is argued that the idea of self‐monitoring lends itself poorly to ‘delegated’ private social care services, i.e. to services that are outsourced to private service suppliers. Supervision of private social care service providers should not be too eagerly delegated to service providers themselves, or to clients, because we are here dealing with the constitutional right to adequate social care services. Client involvement also involves numerous practical problems, as shown at the end of the article.     

Strategic Planning for Support Services for Children with a Parent or Close Relative in Prison

It has long been recognized that children with a parent or close relative in prison are more likely to experience educational difficulties, emotional distress, family breakdown and a substantial reduction in family income (Boswell 2002; Smith et al. 2007; Morgan et al. 2013b; Morgan and Gill 2013). Consequently, children with a parent in prison are more likely to require support from statutory services, especially education and social care. However, statutory support for this group of children is sparse, and children of prisoners tend not to be identified as a priority group. The demand on local authorities to spend their limited budgets wisely means tough decisions have to be made. These decisions are not taken in a vacuum: they are taken in a context of local need, consumer representation, central and local politics; underpinned by the values and attitudes of individual members as well as by the ethos or culture of the local authority itself. In this article we apply Axford's typology (2009) of the different cultures which underpin local authority service provision to data from a research study carried out in 2011 in one local authority which explored support provision in schools for children of prisoners. We examine the contradictions and gaps within the local authority's attempts to synergize the different modules of service delivery into a coherent pattern of provision, and we explore how changes in strategic culture might lead to improvements being made in terms of service delivery to this group of ‘vulnerable’ children.     

‘It's about changing services and building relationships’: evaluating the development of Children in Care Councils

The introduction of Children in Care Councils under the Care Matters reforms in England set a challenge for local authorities to find effective ways by which children in care could contribute their views to the planning and provision of services. This paper discusses a review of progress across London which combined a survey of boroughs with focus group discussions with young people, local authority staff and elected members. The research found that considerable progress had been made in that virtually all boroughs had some mechanism for representing children in care, and that staff and young people were proud of their achievements. However, major challenges remain – to embed a culture of participation in services, to ensure continuity, to reach all children including the many placed ‘out of borough’ and to defend what has been achieved in the face of severe cuts in public spending. The paper highlights a tension between empowering young people and meeting targets as corporate parents. The results support other research pointing to the need for a better understanding of the relationship between participation in governance and participation grounded in ordinary life.     

Families on the brink: the effectiveness of family support services

This paper presents findings from a study of the costs and effectiveness of family support services offered to 40 families with a high level of need, in two neighbouring local authorities in North Wales. It describes the level and type of services offered by different agencies in each of the authorities, estimates the costs of these services, and assesses outcomes for the families receiving them after three months. Information is also provided about families’ experience of the support they received, and the kind of help they would have liked. Parents’ well‐being and family functioning were found to improve over the intervention period in both authorities, although only to a limited extent. Improvements were greater among those who were living with partners, and less among families identified by social workers as having financial difficulties or problems with drug or alcohol abuse. Respondents who rated their problems as very severe showed less improvement. The pattern of service provision and the costs involved turned out to be similar in both authorities, so it was not possible to reach conclusions about the relationship between services and outcomes. However, a number of themes emerging from the data are discussed, including the role of day care services in supporting families with young children, the impact of poverty and deprivation on parents’ ability to provide good care for their children, and the importance of an interagency response to children's and parents’ needs. The article also includes a discussion of problems encountered in undertaking comparative outcomes‐based research and cost‐effectiveness analyses in the social welfare field.     

Organizational support for evidence-based practice within child and family social work: a collaborative study

Research in Practice works in collaboration with over 50 English local authorities and voluntary childcare organizations, to explore new and dynamic ways to increase the use of quality evidence to improve services to children and families. One Research in Practice initiative was a two‐year collaborative project involving the social services departments of six local authorities. This paper reports on how the views of more than 100 professional staff involved with the provision of services to children and families have been gathered to offer insight into how evidence‐based practice can be supported or frustrated in social care organizations. The findings suggest considerable uncertainty about the nature of evidence in social care and its validity in relation to decision‐making, policy and planning. Mechanisms essential for the dissemination, implementation and adoption of research messages are underdeveloped and tensions exist around the explicit use of research evidence within reports and reviews. Many practitioners and teams may be excluded from making decisions based on the best available research evidence through lack of access to internet resources and adequate information dissemination mechanisms. The paper concludes that there remain considerable areas for further debate if evidence‐based practice is to become a reality in work with children and families.     

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.     

Implementing the Children Act: The Regulation of Day-care Services for Young Children

Correspondence to Julie Bull, Research Officer, Thomas Coram Research Unit, University of London, Institute of Education, 27/28 Woburn Square, London WC1H 0AA Summary This article presents the findings of the first stage of a studyundertaken by the Thomas Coram Research Unit at the Universityof London for the Department of Health. The study aims to monitorand evaluate the implementation of Parts III and X of the ChildrenAct, which relate to the provision of dhy-care and pre-schooleducation for children under eight. The article reports thefindings of the first stage of the study on the aspects of implementationinvolved in the regulation of children's services, which isone of the most significant of the changes heralded by the Actfor under-eights' services. Based on the findings of a studyin eighteen English authorities and eight Welsh counties, thearticle outlines the different approaches taken to regulationin terms of organizational structures, degree of consultationwith providers, and overall approach to implementing the newsystem. The response of providers as reported by local authoritystaff is also discussed. The findings of the study are set inthe context of the current policy debate about the role of regulationand the status of the recommendations in the Guidance accompanyingthe Act. As well as outlining the degree of vanation found amongauthorities and indicating some of the ‘pressure points’in implementation, the article raises issues of critical concernabout the role of regulation in the context of the private marketof day-care provision.     

Motivation and Commissioning: Perceived and Expressed Motivations of Care Home Providers

Commissioning of social care for older people has seen major changes since the early 1990s. Considerable responsibility now rests with local authority staff, whose views of care home providers’ motivations, their perceived strengths and weaknesses as service providers, will have a bearing on commissioning decisions. We examine commissioners’ views of provider motivations in eight English local authorities and compare their perceived motivations with providers’ expressed motives. Data were collected through semi‐structured face‐to‐face interviews with commissioners and care home providers. Providers are generally perceived by commissioners as highly altruistic, but also relatively financially motivated individuals. Further analysis revealed significantly different views towards profit‐maximizing, which commissioners perceive as very important, while providers consider it to be of little motivational value. Private sector providers are described by commissioners as significantly more motivated by personal income. Associations are found between commissioners’ perceptions of motivations and the nature of their relationships with providers. Perceptions of providers’ motivations appear important within the commissioning framework.     

Nursing Homes in England and their Capacity to Provide Rehabilitation and Intermediate Care Services

The numbers of older people living in residential and nursing home care in the UK have risen exponentially since the early 1980s when the closure of long–stay geriatric wards and changes in social security funding of care home places led to a rapid expansion of the care home industry. While the implementation of the 1990 National Health Service (NHS) and Community Care Act shifted the responsibility for the commissioning and funding of these services to local authority social services departments, the provision of most health services (such as general practitioner care, physiotherapy and specialist nursing services) to nursing home residents remains the responsibility of community–based NHS practitioners. Recently, the attention of policy–makers in the UK has been focused on the need to improve the throughput of the acute sector. Older people who have received treatment but are not yet able to return to their own homes are to be transferred into intermediate care facilities, often by using nursing home beds, with the aim of supporting short–term rehabilitation outside of the acute sector. This paper presents evidence from a study of health service provision to older people living in nursing homes in England. It examines whether nursing homes have the capacity to fulfil the rehabilitation and intermediate care function envisaged by policy–makers. It concludes that shortfalls in the provision of NHS services to nursing homes and difficulties faced by nursing homes in paying for health services themselves may hinder the rehabilitation potential of intermediate care placements in nursing homes.     

Big Business in a Thin Market: Understanding the Privatization of Residential Care for Children and Youth in Sweden

This article analyzes the transformation of Swedish residential care for children from a regionally coordinated, public social service system into a thin, but highly profitable, national spot market in which large corporations have a growing presence. Marketization and privatization are theorized as complex processes, through which the institutional structure and logics of this small, but significant, social policy field changed profoundly. Using official documents, register data, media reports and existing research, three consecutive phases in the development of the children's home market are identified since the early 1980s. Change was driven on one hand by policies inspired by New Public Management, which shifted public authority horizontally to the private sector, and vertically to local authorities (funding) and to the state (regulation). On the other hand were the responses of local authorities and private actors to the changing incentives that policy shifts entailed. During the first two phases, both the proportion and size of for‐profit providers increased, and the model of family‐like care was replaced by a professional model. Cutting across the trend of privatization in the third phase was establishment of a parallel system of homes for unaccompanied refugee children – mostly in public ownership. Similarities with privatization in the English system of children's care homes are noted. By showing how the Swedish market for residential care has been created by policy and by actors’ responses to those reforms, the article provides a foundation for thinking through how the predictable, significant and well‐documented problems of such care markets might be addressed.     

Assimilation,control, mediation or advocacy? Social work dilemmas in providing anti‐oppressive services for Traveller children and families

This paper explores dilemmas facing social work in England in providing anti‐oppressive services for Travellers, particularly those who lack secure sites. A context is provided by outlining the conflict between Travellers and the majority society, and its expression in oppressive legislation, policy and practice. The implications of the corporate local authority role for relationships between Travellers and social services, and the specific history of Travellers and welfare, are also explored. The remainder of the paper draws on findings from a Nuffield‐funded study of policy and provision by English social services departments for Traveller children and families. Provision is undermined by mutually difficult relationships between Traveller communities and social services, and competing demands on social services in relation to professional values and support of Travellers’ rights, and their simultaneous contribution to local authority control of unauthorized camping. However, newer developments in some social services departments may be able to generate more positive relationships with Travellers, to promote their individual and cultural rights, and build partnerships with voluntary agencies which have a significant role in work with Travellers. The implications for social services departments wishing to develop their policies and practice with Traveller families are outlined.     

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.     

Barriers children face complaining about social work practice: A study in one English local authority

Despite the introduction of guidelines and procedures aimed at encouraging and supporting children and young people to complain about the services they receive, children in care still face barriers to doing so in practice. This paper explores what happens when children in care are dissatisfied with the services they receive. Specifically, this study examines the complaints procedure for children in care. The findings are based on semistructured interviews with children in care, social workers, senior managers, and independent reviewing officers from one English local authority. Thematic analysis of these data identified five emergent themes: (a) complaints by children in care are managed at the lowest possible level, (b) senior managers have an overly optimistic view about children in care being informed of complaint procedures and being encouraged to do so, (c) children in care are worried about complaining, which is recognized by professionals, (d) children's voices are often not heard, and (e) when issues are clearly defined, independent reviewing officers have some degree of success in resolving complaints from children in care.     

Reconciling Cash and Care: Home Care Charges and Benefit Checks in Social Services

Correspondence to Pete Alcock, Health and Community Studies, Sheffield Hallam University, Collegiate Cresent, Sheffield S10 2BP Summary This article contains the report of a small research projecton the development of welfare rights checks for home care clientsin social services departments. Welfare rights take-up activityhas become an important feature of provision by local authoritysocial services departments, frequently targeted on particulargroups of clients known to experience problems in claiming fullbenefit entitlement. Users of home care services are such aclient group. Take-up work with home care clients is also, however,a product of the impact of community care policy changes andof financial pressures on local authority social services. Thesehave resulted in the introduction of charges for home care servicesby many authorities, and the use of rebates from such chargesto protect low income service users. Welfare rights work hasthus become an important feature of the reconciliation of thesenew charging policies with the continued service needs of poorhome care clients. The research examined a successful take-upinitiative, linked to home care charges, in Sheffield and contrastedthis with similar activities in other authorities throughoutthe UK. The conclusion is reached that levels of non-take-upof social security benefits are particularly low amongst homecare clients and that benefit checks can secure significantadditional income for them, which may also have the indirecteffect of increasing the income to social services departmentsfrom the charges for home care services.     

Patterns of Provision in Respite Care and the Children Act

Summary This article presents the findings of a three-year study intorespite care services to disabled children and discusses thesein the light of the 1989 Children Act. The aims and methodsof the research are first outlined and the various servicesincluded in the study are described. Access to services was found to be uneven, with families fromlow socio-economic groups and from black and ethnic minoritycommunities apparently having less choice. The characteristicsof users are identified: some of these varied according to typeof facility used or amount to care received. Agency records and registers were often found to be inaccurate:the Children Act will require authorities to maintain updatedregisters. New powers to charge for services may create furtherbarriers to access although requirements to take account ofchildren's racial and cultural background should extend it.The Act will help authorities regulate the amount of respitecare children receive and introduces certain safeguards. Itsemphasis on consulting young people is to be welcomed. Overall,the new legislation has the potential to improve many aspectsof respite care; its ability to do so will depend on havingadequate resources.     

Children in Need and their Families: Outcomes of Referral to Social Services

Jane Gibbons. Social Work Development Unit. University of East Anglia. Norwich NR4 7TJ. Summary The Children Act provides a clear remit to local authoritiesfor the provision of services to children in need and theirfamilies. Increased service provision needs to be supportedby evaluation of effectiveness. The paper describes an attemptto develop instruments for this purpose. In a sample of 122families containing children under 14 who were referred to socialservices departments, indicators of family needs, services receivedand their outcomes were used to examine whether services werematched to needs; and whether they had any effect on familyproblems in the short term.