The Parliamentary Under-Secretary of State, Department for Education (Lord Nash) (Con)
My Lords, I join other noble Lords in thanking the noble Baroness, Lady Armstrong, for calling a debate on this important subject. I am sure that the whole House would agree that kinship carers, many of whom are grandparents, play a pivotal role in caring for children who cannot live with their parents. I welcome the opportunity to answer for the Government in this short debate.
First, I make it clear that the Government do not see a hierarchy between adoption, fostering, residential care or kinship care. We are interested not in favouring one type of care over another, but in what is right for each individual child. Over the last five years we have made significant strides in this regard. I am grateful for the supportive remarks made by the noble Lord, Lord Storey, my noble friend Lady Bottomley and the noble Baroness, Lady Massey.
For a majority of children, kinship care will be the first and best option. This is not just because it is what the law requires, but because we know kinship care offers children a vitally important bond of familial love and belonging. That is why we applaud kinship carers who step in, often in a crisis or emergency, to take on the care of a child, as my noble friend Lady Bottomley and the noble Baroness, Lady Drake, said. There will, of course, be many children being looked after by relatives where care proceedings are not an issue but where the primary carers are ill or in distress and cannot easily care for the child. However, the Government recognise that kinship carers take on a role that might otherwise have to be performed by the state. Kinship carers enable vulnerable children and young people to remain with their families, with people they know and trust who can provide the right commitment, security and stability they need to thrive.
We know, through voluntary sector research, that children benefit from living with their extended family and that placement stability is a factor in children’s later achievement. Children in placements with relatives are likely to be more stable than ones in unrelated fostering or residential care. In particular, research indicates that children in these arrangements have fewer emotional and behaviour problems and achieve more academically. As the noble Baroness, Lady Armstrong, said, an analysis carried out by researchers at the universities of Oxford and Bristol and published only last week found that, among the cohort of looked-after children who were eligible for GCSEs in 2013, children in kinship care had higher GCSE point scores on average than children in other types of care. That is why, through the discretionary housing fund and through funding the advice line provided by the Family Rights Group, we are trying to help kinship carers to safeguard children’s futures by keeping them within the wider family and community.
I welcome the chance, through this debate, to consider the support available to kinship carers and what we are doing to improve this. We know they need better information and support. That is why, during the previous Parliament, we issued family and friends care statutory guidance for local authorities. This makes clear that every council should publish a family and friends care policy, setting out how it will support the needs of children living with kinship carers, whether or not they are looked after. In particular, we made a commitment to increase the number of local authorities that have published their policies for supporting family and friend carers. Following national sector learning days organised by the DfE with local authorities, 83% of English local authorities have now published a policy, compared with 42% in 2012. We intend to write again to councils on this issue.
We recognise that kinship carers are not always accessing the support they should have. Although most authorities have policies in place, we now have to focus on the quality of the support they offer to family and friends carers. To this end, the department has been funding the voluntary sector organisation Grandparents Plus to develop models of best practice in early help and to identify how to overcome the barriers to providing good, well-structured services and early support for kinship carers. Also, we have seen the use of special guardianship orders increase year on year since their inception in 2005. Special guardians are mainly family members, often grandparents, who provide loving, permanent homes for children. This has largely been a positive development and we welcome it. My department has recently completed a review of special guardianship. Evidence from this suggests that special guardianships are, in the main, positive relationships which protect children’s welfare and improve their outcomes into adulthood. We are currently considering the results of the review, including looking at how we might improve appropriate support to special guardians.
We have been working closely with the key voluntary sector organisations, the Family Rights Group and the Kinship Care Alliance. In answer to the noble Baroness, Lady Massey, I can say that we plan to publish the report of the review before Christmas. The noble Baroness, Lady Armstrong, referred to the important work done by the Family Rights Group, and we are providing financial support to it for its work with kinship carers through, for instance, its helpline and promoting the use of family group conferences. My department has been funding them for more than seven years. That clearly demonstrates our commitment to the valuable work that they do for kinship carers.
We are currently reviewing our grant payments to voluntary and community-based organisations beyond the end of this financial year in the light of the spending review. We will have more information on this in the new year. In the mean time, I express my thanks to the Family Rights Group for its support to families and emphasise that the Government recognise the important work that it does.
The noble Baroness, Lady Armstrong, mentioned the concept of a presumption of kinship care. The law already states that children should be looked after by their families wherever possible. She also mentioned mental health. Improving access to CAMHS for vulnerable children is a priority of this Government. We have committed £1.4 billion to improve mental health services for children and young people over the next five years and we are working closely with the DoH and NHS England. The transformation to services we expect is set out in the Future in Mind report, which makes suggestions about what more can be done to improve access, develop better partnership working with parents and carers and provide the right support for children who have suffered trauma.
Many family members make great sacrifices in order to care for children. Local authorities have a legal duty to support children who leave care under other legal orders, and carers should discuss any needs with their local authorities. Children who have left care for a friends and family placement underpinned by a special guardianship or relevant child arrangement order have access to priority school admissions, pupil premium and free early education for two year-olds.
In relation to support for adopters and whether this should be extended, mentioned by the noble Baroness, Lady Massey, and the noble Lord, Lord Watson, the Adoption Support Fund has been set up to address the serious gaps in specialist services for adopted children. It is still in its infancy. If it proves successful, we will look to apply the learning in other areas. We are considering how to improve support for special guardianship as part of the special guardianship review, which, as I said, will be published before Christmas. However, given the wide range of needs and circumstances of family carers, it would be inappropriate as well as complex to provide a national allowance which is both equitable and simple to administer. Children placed in a kinship care arrangement by a local authority are looked-after children, in which case their carer must be approved as a foster carer. In these circumstances, kinship carers must receive the same support as all other foster carers, including financial support. However, the majority of kinship carers will be caring for children who are not looked after. Relatives caring for a child in these circumstances are entitled to support such as child benefit and other benefits available to parents, subject to the usual eligibility criteria. It would be difficult to require local authorities to provide a dedicated support service solely for relative carers, as most of the services required will be the same as those needed by other families.
The noble Lord, Lord Watson, mentioned that our recent focus had been on adoption; our recent focus has indeed been on improving one area in relation to it. As we have mentioned in other debates, we have done a great deal of work over the last five years on improving the provision for all children in care. The Children and Families Act was a substantial piece of legislation which has substantially improved the fostering arrangements and introduced early placements. Long-term foster care has been recognised as a distinct placement. We have invested £100 million in Pupil Premium Plus. We have virtual school heads and we are currently conducting a review of children’s homes.
Lord Watson of Invergowrie
The Minister mentioned other pieces of legislation that have recently gone on to the statute book. I do not expect him to comment specifically on the Welfare Reform and Work Bill, but I wonder if he and his department are considering the impact of the decision not to exempt adoptive parents from the two-plus children tax credit limit, because there will undoubtedly be an effect on his department, and indeed on the ability of the number of adopters and kinship carers to be extended in the future.
Lord Nash
Noble Lords will be aware that this was discussed last night. I know that my noble friend Lord Freud will have listened carefully to those arguments and will be considering the response. I will discuss it with him.
Finally, I know that the House recognises the crucial role that working grandparents play in providing childcare and supporting working families, as my noble friend Lady Bottomley mentioned. That is why we have announced plans to extend the current system of shared parental pay and leave to cover working grandparents, thereby providing much greater choice for families trying to balance childcare and work. We will bring forward legislation to enable the change to be implemented by 2018.
I am sure the whole House agrees that kinship carers —grandparents, aunts, uncles, cousins, siblings and friends—fulfil a vital role in the care system and deserve the continued support of the Government. I am grateful to all noble Lords who have spoken in this debate.