The Influence of Performance Measurement on Child Welfare Policy and Practice

Correspondence to Clare Tilbury, School of Social Work and Applied Human Sciences, University of Queensland Q 4072, Australia. E-mail: c.tilbury{at}social.uq.edu.au Summary The increasing use of performance measurement in child welfarepromises to have significant consequences. Performance indicatorsare not neutral or merely technical—they represent viewpointsand values that may influence policy and practice. This three-partarticle examines how this may occur. The first part outlinesa theoretical approach to understanding the policy significanceof performance indicators. As they become part of the frameworkwithin which policy debates occur, indicators may frame policyissues, create boundaries around options for solutions, definestandards for evaluating results, and set the terms of publicdiscourse. The second part discusses the background to the developmentof performance measurement in child welfare in Britain, theUSA and Australia, locating it as integral to contemporary approachesto public sector management. The third part examines the performanceindicators used in these jurisdictions-aspects of performancemeasured, underlying assumptions about ‘good’ performance,and how they construct child welfare. Existing indicators narrowlyconstruct child welfare in terms of investigations and out-of-homecare, whereas the child welfare literature suggests a broaderapproach with more attention to family support. The articleargues that there is space to negotiate on the new managerialistterrain, developing an approach to performance measurement thatcontributes to better services and outcomes for children andfamilies.     

Participation and Child Protection: The Importance of Context

Correspondence to Karen Healy, Department of Social Work, Social Policy and Sociology, University of Sydney, New South Wales, 2006, Australia. Summary This paper examines the effects of discourses about participationon child protection practice. The paper critiques the prevalentconceptualizations of participation on the grounds that, often,these ideals have been imported from other disciplines withoutdue regard for the specificities of child protection practice.Initially, the critique is focused on how participatory discourseshave resisted adaption to the child protection field. For example,participation and paternalism are often paired dualistically,with the consequence that participation is seen as an unquestionablegood, whilst practices that do not conform to this ideal areassociated with paternalism and considered to be antitheticalto just child protection practice. By examining some of thetypical responses, within the child protection literature andamongst child protection professionals, to the prevalent discoursesabout participation it is argued that these discourses haveactually thwarted the development of participatory processesin child protection work. This is because these discourses donot engage with the expectations associated with child protectionwork, particularly the use of statutory power that such practicedemands. The final part of the paper identifies how post-structuraltheory, particularly the work of Foucault, can highlight anddismantle some of the assumptions about power on which participatorymodels have rested and allow for the development of a participatoryethos which is receptive to the specificities of child protectionwork.     

Risk, Advanced Liberalism and Child Welfare: The Need to Rediscover Uncertainty and Ambiguity

Correspondence to Professor Nigel Parton, School of Human and Health Sciences, University of Huddersfield, Queensgate, Huddersfield HD1 3DH. Summary The purpose of this paper is to analyse and reflect upon thecurrent state of child welfare policy and practice and how thishas changed over recent times. In the process it aims to makea contribution to the current debates on ‘the refocusingof children's services’. A central part of the argumentis that new strategies have emerged which do not have as theircentral focus either meeting the needs of children or respondingto child abuse, but the assessment and management of risk. Inselecting such a focus, such developments are in danger of overlookinga central characteristic of policy and practice in terms ofthe pervasiveness of uncertainty and ambiguity. Not only dothese characteristics need to be reorganized, but they needto be built on in order to take our thinking and practices forward.     

The Cognitive Interview--A Useful Tool for Social Workers?

Correspondence to Helen L. Westcott, Public Policy Department, NSPCC, 67 Saffron Hill, London EC1N 8RS. Summary Interviewing techniques embodied in the Cognitive Interview(CI) are introduced with a view to assessing their potentialfor interviews conducted with child abuse victims. The techniquesare summarized and literature pertaining to their developmentpresented. Two studies examining use of the CI with child witnessesare discussed, before the general applicability of the CI forsocial work interviews with abused children is assessed. Itis concluded that the CI does offer possibilities, but thatfurther research into the CI which is more specifically designedwithin the social work context is-needed.     

Temporary Foster Care

Summary In order to improve outcomes in temporary foster care the authorbelieves there is a need to develop alternative models for practicethat would (a) define the social work task (b) specify in operational terms how that task would be accomplishedand thus would be amenable to empirical testing. (Temporaryfoster care is defined as the provision of substitute familylife for a child received into care, where there is a clearintention to re-unite the natural family at a future date). This article deals with the essential preliminaries to the developmentof a practice model. The first part surveys the relevant literature;part two develops a theoretical framework for practice aroundthree themes which are considered central to a considerationof foster care. These are the separation experience, the placeof the natural family, and role clarification. Other crucialvariables such as the age of the child, the nature of the problem,or the parents' potentiality for change are not dealt with withinthese papers, but are nevertheless seen as important issuesto be considered at the stage of designing a model for practice.     

Avoidable and Unavoidable Mistakes in Child Protection Work

Summary This article argues that social workers and the general publicneed a clear understanding of the distinction between avoidableand unavoidable mistakes in child protection work. The publicis understandably distressed when a child dies and is rightto demand an inquiry to check the quality of help provided.But a child's death is not proof that any professional was incompetent.Our limited knowledge and the complexity of assessing risk meanthat professionals can only make the best judgement on the availableevidence. Analysis of forty-five inquiry reports shows thatinquiries appreciate this; in 42 per cent of them social workerswere not criticized. The analysis however also reveals one persistenterror: social workers are slow to revise their judgements. Psychologyresearch indicates that this error is widespread and by no meanspeculiar to social workers but it means that misjudgements aboutclients that may have been unavoidable on the limited knowledgeavailable when they were made continue to be accepted despitea growing body of evidence against them. Social workers needa greater acceptance of their fallibility and a willingnessto consider that their judgements and decisions are wrong. Tochange your mind in the light of new information is a sign ofgood practice, a sign of strength not weakness.     

A Role for a Support Person for Child Witnesses in Criminal Proceedings

Correspondence to John Williams, Department of Law, University of Wales, Aberystwyth, Hugh Owen Building, Penglais, Aberystwyth, Dyfed SY23 3DY Summary The 1989 Children Act greatly extends and enhances the roleof the guardian ad litem (GAL) as the officer appointed by thecourt to safeguard and protect the welfare of the child in civilchild protection proceedings. But how do children fare whenthey are involved as witnesses in criminal proceedings? Sincethe latter part of the 1980s it has been recognized that theirimmatunty requires a more sensitive and caring approach thanthat adopted for adults in the criminal courts. As a resulta number of innovative procedures intended to alleviate stressin child witnesses have been introduced. But one outstandingissue of major importance, that of providing support for childrenbefore and during an appearance in a criminal court, needs tobe addressed urgently: the GAL is only available to childrenin civil proceedings. Drawing on the experience of the UnitedStates, where Victim Assistants are used to provide help andsupport for child victims and witnesses, and where the appointmentof GALs for child victims in criminal proceedings is gainingincreasing acceptance, the authors argue that the American exampleoffers much that may usefully be adopted in tailoring the Britishsystem to the special needs of child witnesses. A number ofmodels for the role of the Support Person for child witnessesin the British system are put forward for consideration.     

Defensive Social Work

Correspondence to Nigel Harris, Department of Philosophy, The University, Dundee DD1 4HN. Summary Social workers with child clients face the possibility thatsome mistake or oversight of theirs could lead to a child abusetragedy, for which they may suffer opprobrium and blighted careers.How can they guard against such risks? This paper shows howsocial workers might use different types of ‘defensive’measure to protect themselves. These parallel the types of measureused by some doctors, particularly in the United States, facedwith risks of litigation on grounds of malpractice. Becausedefensive practices have undesirable consequences, it is importantto find ways to eliminate their use by protecting social workersby other means.     

The Influence of Child Protection Orientation on Child Welfare Practice

Summary This article reports the findings of the second part of a two-partresearch project examining the potential for social workersto make changes in their work with families and children. Whilstsocial workers in the United Kingdom have been encouraged toshift from a child protection to a child welfare orientationin their practice, such changes have been hampered by professionaland organizational concern to manage risk. The research exploresthe influence of a child protection orientation on practicein child welfare cases. The findings, from two file analysesand interviews with 26 social workers, indicate that such aninfluence is indeed apparent. This is evidenced in two ways;first patterns of practice in child welfare cases are similarto those in child protection cases. Secondly, while the majorityof social workers express an attitudinal desire to move towardsa child welfare orientation, they still prioritize the managementof risk in their practice. It is argued that social workersneed permission from their employing organizations to make changesin their practice. This, in turn, requires such organizationsto state clear goals in line with a child welfare orientationand develop holistic strategies to achieve these.     

Children's Homicide as an Indicator of Effective Child Protection: A Comparative Study of Western European Statistics

Correspondence to Colin Pritchard, Professor of Social Work Studies, University of Southampton, Highfield, Southampton SO9 5NH. Summary It is known that the extreme consequence of child abuse is adead child. Attempts to determine the success of services toprevent child abuse and subsequent deaths confront the problemsinherent in trying to prove a negative. The use of an epidemiologicalapproach resolves some of the methodological problems by measuring‘failure’ to protect in an examination of children'shomicides rates over time. Between 1973 and 1988 it was found that there was a substantialreduction in baby homicides in England and Wales, equivalentto a fall of 61 per cent and a 57 per cent reduction in Scotland.In a comparison with the other fifteen Western European countries,England and Wales topped the league of improvements in children'shomicide, and Scotland was fourth. Such improvements suggestadvances by the child protection services. Explanations forthe positive British results are considered.     

The Death of a Child

Summary The death of a child is an intrinsically tragic event for theparents of that child. What might appear as abnormal grief inbereaved parents can often be understood in the context of thepreceding circumstances of their lives and that of the child.This paper examines guilt and anger as experienced by a bereavedcouple in relation to the sudden death of their mongol son;the inability of another couple to detach themselves from theirbaby who had suffered a cot death; and the effects on bereavedparents of the denial of death in modern society.     

Determinants of Substitute Child Care Practice

Correspondence to Dr Matthew Colton, Department of Social and Administrative Studies, Barnett House, Wellington Square, Oxford CX1 2ER Summary The first part of this paper attempts to examine the factorswhich help to define foster and residential care practices.The discussion is informed by a comparative study of fosterhomes and Children's Homes, which was reported in the previousissue of this journal (BJSW 18:1). Overall, care practices inthe foster homes compared very favourably with those observedin the Children's Homes. It is argued that this finding owesmuch to the bureaucratization of Children's Homes. The secondsection considers the implications of my work for policy andpractice in the field of substitute child care. Use is madeof the insights provided by the preceding section to suggestways by which the major shortcomings identified by empiricalresearch might be ameliorated. This statement includes an argumentin favour of a significant expansion of family placement forolder children in public care, and a proposal for a child-orientedalternative to the sorts of Children's Homes visited.     

Over-chastisement, Child Non-compliance and Parenting Skills: A Behavioural Interventiaon by a Family Centre Social Worker

Summary This single-case study describes a behavioural interventionby a Family Centre social worker with a family whose two eldestchildren had been registered on the Child Protection Registerfollowing an incident of over-chastisement by their mother.Working in partnership with the parents. a behavioural assessmentand intervention was undertaken over a four month periood. Theassessment suggested that child non-compliance was a centralproblem behaviour and that mother and child were caught in atrap where each negatively reinforced the other's aversive,coercive behaviour, since these behaviours were successful interminating the other's unwanted or aversive behaviours. Theintervention aimed to increase child compliance and reduce childdefiance using a positive reinforcement programme, and to increasethe mother's child management skills using a parent trainingprogramme. The results showed that child compliance with maternalinstructions increased significantly and that this was maintainedat eleven month follow-up. Also, mother's use of command negativedecreased significantly; this improvement was also maintainedat eleven month follow-up.     

A Kind of Loving: A Model of Effective Foster Care

Correspondence to Professor Kate Wilson, Centre of Social Work, University Park, Nottingham, NG7 2RD. E-mail: kate.wilson{at}nottingham.ac.uk Summary The article builds on a companion statistical paper, which drewon the findings of a large sample of foster placements and analysedfactors leading to a successful placement and the avoidanceof disruption. A model of successful foster care was developedwhich suggested that outcomes depend on three aspects of thefoster placement, those that relate to the child, the fostercarer and the interaction between the two. Here, a concreteexample in the form of a case study drawn from interviews undertakenas part of the study is used to illustrate the relevance ofthe model to practice. The qualities that make up the interactionbetween the carer and the child are elaborated through the conceptof ‘responsive parenting’. The analysis is takenfurther by identifying the processes involved in a way thatis detailed and precise and has relevance to theory. The paperargues that the case study provides material that could informboth training and the theories that underpin practice.     

The Chairperson of Child Care Reviews in Scotland: Implications for the Role of Reviews in the Decision Making Process

Correspondence to Dr A. J. Kendrick, Research Fellow, Department of Political Science and Social Policy, University of Dundee, Dundee DD1 4HN, Scotland. Summary This article is based upon the first stage of a research projecton statutory child care reviews in Scotland and explores therole of reviews in the decision-making processes for childrenin local authority care. We have argued that the position ofchairperson of reviews has an important role in locating childcare reviews in the organïzational structures of the SocialWork Departments. The designation of the chairperson also hasimplications for the objectivity of the child care review. Thenature of conclusions of child care reviews is also exploredand we show that this is a complex issue reflecting the childcare review's relationships to other decision-making bodiesand the manner in which the delegation of authority for thechairing of reviews is structured. While this research is basedupon the twelve Scottish Social Work Departments we believethat the issues discussed have a general relevance.     

The Functions of Child Care Reviews in Scotland A Preliminary Investigation

Correspondence to Dr A. J. Kendrick, Research Fellow, Department of Political Science and Social Policy, University of Dundee, Dundee, DD1 4HN, Scotland. Summary In this second article based upon the first stage of a researchproject on statutory child care reviews in Scotland we explorethe perceptions of the functions of reviews. We identify a numberof primary functions which can be viewed together as elementsin a rational model of decision-making. With certain provisosthis model allows us to distinguish analytically the explicitpurpose of child care reviews. We show that although a numberof other functions take place in reviews these are not perceivedas necessary to reviews and as such can be considered secondaryfunctions.     

Parents' Views on Social Work Interventions in Child Welfare Cases

Correspondence to Trevor Spratt, Lecturer in Social Work, School of Social Work, The Queen's University Belfast, 7 Lennoxvale, Belfast BT9 5BY, Northern Ireland. E-mail: T.Spratt{at}qub.ac.uk Summary This article reports findings from the third part of a three-partresearch project examining the potential for social workersto shift from a child protection to a child welfare orientationin their practice. Whilst social workers in the UK have beenencouraged to make such changes, they have been hampered byconcerns to manage risk. Findings reported from the earlierparts of the project, indicated that there was potential fora substantial proportion of child protection work to be redesignatedas child welfare work, but that where this was achieved in practice,there was evidence of the continued influence of child protectionprocesses as social workers sought to manage the risks inherentin child welfare cases. The study reported here sets out toascertain the views of parents who were subject to child welfareinterventions. The findings indicate that while parents feelapprehension with regard to contact with social workers, inthe majority of cases successful relationships are formed. Itis argued that social workers display considerable skill inmonitoring potential risks whilst engaging with families andthat the subtleties involved in such activity are not capturedby official measures of governance which concentrate on moreabstract indicators of performance.     

Search for an Indicator of Effective Child Protection in a Re-analysis of Child Homicide in the Major Western Countries 1973-1992: A Response to Lindsey and Trocme and Macdonald

Correspondence to Professor Cohn Pritchard, Department of Social Work Studies, University of Southampton, Southampton, SO17 1 BJ England Summary An analysis of child homicides published in the British Journalof Social Work, demonstrated major falls in child deaths inEngland and Wales between 1973 and 1988. The results were seenas one indicator of improved child protection (Pritchard, 1992a).That study, and a reply to a critique by Creighton (1993), werechallenged by Lindsey and Trocmé (1994) and Macdonald(1995). This paper is a response, and takes advantage of thecriticisms and new data to present evidence which confirms thatthere have been reductions in child homicide in England andWales between 1973 and 1992 and that the Anglo-Welsh improvementswere the best of all the major Western countries.     

Workers and helpers: perspectives on children's labour 1899-1999

Summary Children's work has become, over the last century, proscribedby law and custom. Both in domestic and external settings, labouris held to damage the physical, emotional and spiritual well-beingof children. Adults who collude in or tolerate children's labourare subject to judicial penalties and moral condemnation. Thesocial history of childhood proposes an upwards temporal inclinefrom barbarity to humanity. Children's exclusion from the labourmarket is a key factor in this trajectory. Work by children,including care for siblings and parents, has become part ofthe same moral universe as child abuse. It is proposed herethat this proposition may be applied too indiscriminately and,furthermore, that condemnation of children's labour is associatedwith wider social needs and has not arisen solely as a resultof philanthropy. The past, it is suggested, has been disproportionatelydemonized, partly in order to promote certain political goals.While this does not imply that child labour, external or domestic,is unproblematic, it is argued that the same historic mechanismswhich have resulted in the distortion of children's labour experiencehave the capacity to bias our understanding of contemporarywork undertaken by children.     

Placing Children on Child Protection Registers: Risk Indicators and Local Authority Differences

Correspondence to Dr David Gordon, School for Policy Studies, University of Bristol, 8 Woodland Road, Bristol BS8 1TN, UK. Summary Wide variation in rates of children on protection registersin different authorities has led to doubts about the reliabilityof local decision making. A study of 1,752 referrals, for suspectedabuse or neglect in eight English local authorities, found thatindicators of child and family vulnerability were more importantthan local area in explaining selection for initial child protectionconference and placement on registers. There appeared to beagreement on ‘common-sense’ risk indicators butstronger measurements of risk would enable child protectionprocedures to be better targeted.