Revisiting children 'home on trial' in the context of current concerns about the costs and effectiveness of the looked-after children system: findings from an exploratory study

Statute and practice relating to s.31 part IV of The Children Act 1989 allow children subject to care orders to be placed at home with their parent(s). It is not uncommon for the courts to accept a plan for children to return home at the final hearing of care proceedings at which full care orders are granted. In such instances, children retain looked‐after status but, in terms of their day‐to‐day care, are looked after by parent(s). Whilst there are a small number of studies conducted in the 1990s relating to children ‘home on trial’, there is a much more limited recent literature. It is important to revisit this population of children, given current concerns about the burgeoning costs of child care proceedings and the looked‐after children system (LAC). This paper reports on a small‐scale exploratory study in one north‐west local authority area. Consisting of a file study and interviews with parents and professionals, the study examines the factors that contributed to initial removal of children to public care, the impact of the LAC system for children ‘home on trial’, stability of placements at home, as well as issues to do with the discharge of care orders. Particular attention is drawn to lone father headed households, a social group over‐represented in our sample. The study aims to inform further multi‐location studies.     

Looking After Children: a case of individualised service delivery

This is a discussion of the debate in the literature on the new Looking After Children system of managing out of home care for children. This is an important program initiative in results‐oriented government that takes an individualised approach to children in care. The literature generally falls into the two categories of either relatively uncritical advocacy of LAC or its wholesale critique. These two camps pass as ships in the night and echo polarised epistemologies within policy analysis. There is very little analytical attention to LAC as an instance of the wider human service trends of individualised planning and case management.     

Using the 'Looking After Children' dimensions to collect aggregate data on well-being

The Department of Health has funded the development of a set of schedules for collating information on and monitoring the progress of children looked after by local authorities. An additional aspiration underlying official encouragement of the use of these ‘Looking After Children’ (LAC) materials was that they would provide aggregate data to feed into national and local policy and planning. Progress on this aim has been slow, in part because instruments designed to aid practice in individual cases have not adapted easily to the hoped for dual role, and in part because completion rates have been patchy and often poor. This paper describes an action research project designed to use the children's reviewing system to collect aggregate data on the LAC dimensions of well‐being. It comments on the viability of this method of aggregate data collection as well as locating the information on a cohort of 96 children in the context of other studies, and debates about whether the state can be a ‘good parent’.     

Mapping Child-Care Social Work in the Final Years of the Twentieth Century: A Critical Response to the 'Looking After Children' System

Correspondence to Paul Michael Garrett, c/o, British Journal of Social Work, University of Warwick, Coventry, CV4 7AL Summary This paper explores aspects of the Looking After Children: GoodParenting: Good Outcomes system (LAC) (Parker et at., 1991).It is suggested that the scheme, to be used with children andyoung people who are ‘looked after’ by local authorities,needs to be subjected to greater critical scrutiny. The paperseeks, therefore, to situate the LAC system in a social andpolitical context and highlights how it also relates to thedominant operational modalities of social work interventionin the late 1990s. In addition, the paper explores how ‘troublesome’children and ideas centred on ‘parenting’ featurein the LAC discourse. The discussion concludes with an examinationof Action and Assessment Records (Ward, 1995b), the centrepieceof the LAC system.     

Social functioning and mental health among children who have been living in kinship and non‐kinship foster care: results from an 8‐year follow‐up with a Norwegian sample

Studies have shown relatively high rates of emotional and behavioural problems among children living in out‐of‐home care. This study reports the prevalence of social problems at an 8‐year follow‐up for a group of children/young adults. Predictors for prevalence and change in emotional and behavioural problems at the follow‐up are examined. A prospective cohort design with 233 children who had been living in foster care was used. Forty‐eight per cent (n = 111) of those interviewed at baseline were located and interviewed at follow‐up. Mean age was 17.4 (standard deviation = 2.9) years. Mental health symptomatology was measured with Child Behaviour Checklist and Adult Self‐Report. Linear and generalized mixed model analyses were used. Changes in internalizing and externalizing problems from baseline to follow‐up was associated with gender. Boys showed more problems at a young age, whereas girls developed more problems later. Predictors for social problems at follow‐up were mental health at baseline, kinship care and care placement away from the local community.     

What is a family? Constructions of family and parenting after a custody transfer from birth parents to foster parents

The subject of stability for children in long‐term foster care is an emerging field within social work with vulnerable children. In Sweden, the adoption of foster children is not a common occurrence. Instead, when a child has been placed in foster care for 3 years, the local social welfare committee will consider whether the custody of the child should be transferred to the foster parents regardless of the circumstances of the birth parents, in order to secure stability and a sense of family belonging. Consequently, custody transfers raise questions such as “who is family?” and “who is a parent?” This qualitative interview study with custodians and young people who have experienced custody transfer highlights that who counts as family and as a parent is ambiguous. This article draws attention to how negotiations about family and parenthood revolve around biological, emotional, and relational dimensions. Furthermore, we show that stability for children in care has to be understood in terms of processes over time and not as the result of a single decision of custody transfer. Consequently, social workers need to take several aspects into account when they assess family belonging and stability for children in foster care.     

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.     

Children living with parental substance misuse: A cross‐sectional profile of children and families referred to children's social care

Parental substance misuse is a significant public health and children's rights issue. In the United Kingdom, social workers frequently work with children and families affected by substance misuse. However, relatively little is known about this population, particularly at point of referral to children's social care. This paper reports on the largest known study of parental substance misuse as a feature of children's social care work in England. The paper provides a cross‐sectional profile of 299 children living with parental substance misuse and referred to children's social care in one local authority in England. Data were collected from social work case files at the point of referral to social care about the child, family, the wider environment, and parental substance misuse. The findings show that children affected by parental substance misuse frequently had other support needs relating to their well‐being and mental health. Children were also likely to be experiencing other parental and environmental risk factors. The significant historical—and in some cases intergenerational—social care involvement for some families indicates potential issues with the capacity of services to meet needs. Recommendations for practice are discussed with a particular focus on the need for early, comprehensive support for children and families.     

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.     

Care, control and change in child care proceedings: dilemmas for social workers, managers and lawyers

This paper draws on findings from an interview‐based study of the ways that local authority social workers, social services managers and lawyers work together in child care cases in England. The study shows how stressful social workers can find care proceedings, and how much they look to the lawyers for support. It also shows how the lawyers’ involvement can bring new stresses and dilemmas. The managers are especially likely to resent ‘over‐involvement’ (as they see it) from lawyers, but lawyers are quick to defend their role and responsibilities. The paper shows how the complex, multifaceted dimensions of care, control and change interweave with professional differences in care proceedings: care for children, parents and social workers; struggles for control against the court, the other parties and sometimes the other professionals on one's own side; and responsiveness to change set against wariness about ‘lawyers’ deals’ and undue risk to children. The paper concludes that the valuing of difference, rather than its avoidance or suppression, is at the heart of effective inter‐professional work. It calls for greater recognition of this in current initiatives to promote interdisciplinary working in children's services in England.     

Exploring the care effects of multiple factors on the educational achievement of children looked after at home and away from home: an investigation of two Scottish local authorities

This paper reports the findings of a research project which explored the care factors that influence the educational achievement of looked‐after children. The project was innovative because it focused on children looked after at home and away from home. A mixed‐methods strategy was adopted to analyse data from two large Scottish local authorities. The project developed, what is to date, the largest dataset which includes variables for one‐fifth of children discharged from care in Scotland over a 5‐year period. The qualitative element of the project collected in‐depth data on the care and education experiences of looked‐after children and care leavers. The overall finding was that looked‐after children perform less well academically than their counterparts in the general school population. The empirical data indicated that factors such as placement type, reason for becoming looked after and age on becoming looked after were significant in determining educational achievement. Empirical results further indicated that looked‐after children suffered from discrimination and social exclusion in many areas of their lives, including school and where they lived.     

The Effects of Early Institutionalization and Foster Care Intervention on Children's Social Behaviors at the Age of Eight

The present study compared the social behaviors of eight‐year‐old previously institutionalized Romanian children from the Bucharest Early Intervention Project (BEIP) in two groups: (1) children randomized to foster care homes (FCG), and (2) children randomized to care as usual (remaining in institutions) (CAUG). Children were observed interacting with an age‐ and gender‐matched unfamiliar, non‐institutionalized peer from the community during six interactive tasks, and their behavior was coded for speech reticence, social engagement, task orientation, social withdrawal, and conversational competence. Group comparisons revealed that FCG children were rated as significantly less reticent during a speech task than CAUG children. For CAUG children, longer time spent in institutional care was related to greater speech reticence and lower social engagement. Using an actor–partner interdependence model, CAUG children's behaviors, but not FCG, were found to influence the behavior of unfamiliar peers. These findings are the first to characterize institutionalized children's observed social behaviors toward new peers during middle childhood and highlight the positive effects of foster care intervention in the social domain.     

Exploring drivers of demand for child protection services in an English local authority

This paper reports on an empirical study of child protection services in a local authority where rates of investigations and interventions rose to unprecedented levels during the course of a single year. The aim of the research was to explore explanations for this rise in demand among the providers of children's social care in the area. Using an interpretative qualitative design, a series of focus groups and interviews were carried out with practitioners and managers (n = 25) from statutory services and Early Help. The findings identified a combination of long‐term and short‐term drivers of demand. Long‐term factors emphasized the impact of rising levels of deprivation combined with cuts to community‐based services for children and young people. Short‐term factors ranged from a more proactive approach to child neglect to more effective multi‐agency partnerships and joint decision making. The interaction between these factors was found to be accentuating an underlying shift to “late intervention” across the sector. The findings are contextualized in relation to contemporary debates about the crisis of demand for children's social care and the complex relationship between prevention and protection.     

Factors associated with placement breakdown initiated by foster parents – empirical findings from Germany

This study investigates the effects of covariates on the probability of placement breakdown in non‐kinship family foster care. Breakdowns are distinguished according to the initiator: children, carers, foster parents and the local child welfare authorities. The children concerned had entered foster care at ages ranging from 0 to a maximum of 17 years (n = 14 171). A significantly higher risk of breakdown on the initiative of the foster parents is found in male children, children whose parents receive financial support, children whose parents were removed from the register of carers, children who were between 6 and 15 years old when they joined the foster family, children who had earlier lived in a different foster family or residential care, children from patchwork families and children whose joining of a foster family was the result of disruptive social behaviour. Two‐thirds of the children from non‐kinship family foster care who stay in the foster family was ended on the initiative of the foster parents are subsequently looked after in residential care. That is three times the rate for all terminated foster relationships. Breakdowns on the initiative of the foster parents thus indicate a high risk of unstable care history developing and accordingly necessitate prevention strategies.     

Theory and explanation in child welfare: education and looked-after children

Empirical child welfare research in England takes insufficient account of wider social theory. Intellectual, professional and political reasons for this are discussed. The implications are considered in relation to one important social problem: the low educational achievement of children looked after by local authorities (‘in care’). It is concluded that the absence of a broader sociological perspective has led to insufficient and simplistic explanations from researchers and policy‐makers of low achievement among looked‐after pupils. It is unwise to rely on official statistics on educational outcome indicators for looked‐after pupils. Previous conceptualization of poor educational performance has been inadequate, and we should refer to low achievement, not ‘underachievement’. The socio‐economic risk factors that are linked with family breakdown and admission to care also predict low educational achievement, such as social class and poverty. Social mobility and transition to adulthood are increasingly problematic in England, making it difficult for care leavers to improve their social position. Parental maltreatment is strongly linked with educational failure. Other countries may do no better than England does. Thus, it is by no means obvious that the care system necessarily jeopardizes looked‐after children’s education.     

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.     

Parents' Experiences During the Family Reunification Process: A Chinese Context

Family reunification is always an integral part of a permanency plan and is a preferable outcome for children in care. However, reunification is not straightforward, involving many subsequent negotiations between parents, children, and social workers, sparking various emotions and struggles among the involved parties. Current research on parental experiences of family reunification is predominantly of a cross‐sectional nature, and rarely reflects the parents' experience throughout the process. This paper reports the results of a qualitative panel study aimed at exploring the experiences Chinese parents have during the process of children returning home from care. Seven parents were recruited. Data was collected at three time points and informants narrated their experiences from both a retrospective and prospective perspective. The findings showed that all parents struggled to become competent caregivers. Three salient themes were identified: inferiority, adjustment, and challenge. The parents' experiences revealed the prevalence of stigmatization among social work professions toward parents. This study recommends re‐focusing the policy direction and intervention strategies of out‐of‐home care from family coercion to family support.     

Intergenerational pathways leading to foster care placement of foster care alumni's children

This study examined a path model that postulated intergenerational relationships between biological parent psychosocial functioning and foster care alumni mental health, economic status and social support; and from these to the likelihood of children of foster care alumni being placed in foster care. The sample included 742 adults who spent time in foster care as children with a private foster care agency and who reported having at least one biological child. A full pathway was found between poorer father's functioning to greater alumni depression, which was in turn associated with negative social support, and then a greater likelihood of child out‐of‐home placement. Other parent to alumni paths were that poorer father functioning was associated with alumni anxiety and post‐traumatic stress disorder (PTSD), and poorer mother's mental health was associated with PTSD; however, anxiety and PTSD were not implicated as precursors of foster care placement of the child. Findings support the need for increased practice and policy support to address the mental health needs of parents of children in or at risk of foster care, as well as the children themselves, as family history may have a lasting influence on quality of life, even when children are raised apart from biological parents.     

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.