Independent Review of Children’s Social Care
(Limited Text - Ministerial Extracts only)
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Edward Timpson
My hon. Friend is absolutely right. That is what was behind the staying-put reforms, as well as the introduction of “staying close” for those who are not in foster care—they have perhaps been in residential care—but need to maintain a relationship and a network of support close to where they live.
North Yorkshire County Council, in particular, started the No Wrong Door project through the innovation programme, which has morphed into what I think is called Always Here. In our own families, where we are lucky enough to be able to do so, we will still be bouncing back at times of need. We have that rock; that stability. As my hon. Friend the Member for Meon Valley (Mrs Drummond) knows, my parents fostered for many years. We still have children who came to live with us through their childhood—sometimes just for a few weeks, sometimes for many months, and sometimes for a long time—and are now in their 20s, or sometimes in their 30s, who come back to us for reassurance at a time when they may be at a low ebb and do not know where else to turn. That is where the cliff edge for those who do not have that stability becomes so drastic, and poor outcomes will inevitably follow.
We know what those outcomes are for care leavers. About one quarter of the prison population are care leavers, as are, I think, 26% of those who are street homeless. Those are hugely disproportionate numbers compared with the rest of the population, which is all the more reason why Josh MacAlister’s independent review, particularly the five missions for those leaving care—I will talk about those later—is so crucial when it comes to turning the progress that has been made into a greater and more extrapolated offer to the 13,000 or 14,000 children who leave the care system every year.
Through the innovation programme, about £200 million was ultimately invested in new approaches, with about 50 evidence-based projects across the country to understand new ways of delivering children’s services better, more effectively and often more efficiently. The MacAlister review gives the example of the Hertfordshire family safeguarding model, which was built around the idea of having multidisciplinary teams around a child and their family—it is actually very similar to the reclaiming social work model that was used in Hackney over a decade ago and was led by Isabelle Trowler, who is now the chief social worker.
The programme has been evaluated and shown to bring significant improvements to outcomes and reductions in the use of care and the time children spend in care. Not only is it good for children and families, because it keeps bonds close and improves outcomes, but in its first year it meant savings for the council alone of more than £2.6 million, which it could reinvest in services, perhaps at an earlier stage when intervention is needed.
The innovation programme did not come about through making technical fixes. To go back to the point that the hon. Member for York Central made about leadership, it came about because there was a real sense of ownership across the multidisciplinary teams and a passionate belief in the reforms that they sought to carry out. I could give other examples from the programme that now form the basis of how we do children’s social better across our country.
I know that Ofsted judgments are only one way of looking at children’s social care services, but I remember that when I first became Minister for Children and Families, only one council—I think it may have been the tri-borough —was rated as outstanding. We had far too many inadequate councils, for many reasons that unfortunately still exist: pressures of work, caseloads, poor interactions between services and opaque ways of understanding what works, leading to the same mistakes being repeated over and over. We do not want any inadequate councils—we want them all to be outstanding—but although I accept that there is still a huge amount of work to do, the good news is that there has been a really good trajectory. I think about 20 councils are now rated as outstanding and about 60 as good, although we still have 17 inadequate councils, which is 17 too many.
Part of the solution, which has already started and which the MacAlister review wants to turbocharge, is in how we intervene on councils that are failing vulnerable children and families in their area. We began that process by being more interventionist and more creative in how we go about breaking the cycle of failure in children’s services. Some are small, such as Doncaster; others are much bigger, such as Birmingham, which was a perennial problem for many years. Sometimes the answer was to work closely with them, put a commissioner in, change the practice, change the leadership and change the culture. On other occasions, the answer was to take the direct running of services away from the council and create a children’s trust focused solely on improving the lives and outcomes of children in and around the care system.
In most cases, although not all, that approach has led to real and occasionally dramatic improvement. Sunderland went from inadequate to outstanding in three years. Having been inadequate in 2013, the Isle of Wight, which was partnered with Hampshire, an excellent council, was good by 2019 and getting close to outstanding. There are ways for the Government to be more directly involved in ensuring that we understand at an earlier stage where things are going wrong and try to fix them.
I want to take a moment to draw out some of the key aspects of the MacAlister review, which builds on much of the work done since 2012, or arguably since the Munro review in 2010 and 2011 showed us where we needed to improve. It is worth taking into account other policies across Government, such as the Start for Life programme and the introduction of family hubs, which complement the MacAlister report’s recommendations.
Family help is key. We have had many debates about how intervention is often too late or too un-co-ordinated and how we often put people through a statutory process but nothing happens directly with families to improve the situation on the ground. The principle of family help, which I support, is to address that issue by bringing in a multidisciplinary team at an earlier stage when there are signs of difficulty. School is a good place to find out where the problems may be. So is the community, one would hope: communities are perhaps not as close as they were a few years ago, but they can be a really good source of information that enables us to understand where family help can work.
Fundamental to successful intervention is having an expert child protection practitioner who can co-ordinate the multidisciplinary team. When I worked on family law cases before I came to Parliament, one of my frustrations was that in many cases the social worker was very new and was not that experienced. Those who were experienced had been floated off into management, where they were far away from families and were doing no direct work whatever.
I am not saying that it has not already happened anywhere—the reclaiming social work model was based around the same idea—but moving towards a family help approach in which someone with real expertise is at the heart of decision making day by day, with families and with a multidisciplinary team structure, seems a sensible way to go. When I chaired the national Child Safeguarding Practice Review Panel, we could see even then, from the child exploitation cases that came to us and from our thematic review, that that was one of the failings that often led to children spiralling into county lines and other forms of exploitation.
That is why the changes that we have made to safeguarding partnerships are so vital. At the moment, statutorily, they get the local authority, the police and the health team working together at a senior level on strategies to create a good child safeguarding system in their area. However, it has now come to the point where schools also need to come on board; Sir Alan Wood, who has done an updated report after his original review, has made the same recommendation. More work needs to be done on how to make that happen and what it will look like, but schools are so fundamental to the effectiveness of safeguarding partnerships and family help. As the first point of contact with children and families, schools can often spot something that is not right, such as the child’s attendance or appearance or their parents’ interaction with the school. I urge the Minister to ensure that Government look positively at that in their response.
I also urge the Government to look at family networks. As I said, communities may not be as robust or as involved as they once were. Unfortunately, most of our community life now tends to happen online, like the dreaded neighbourhood WhatsApp or Facebook groups that tell us a lot about lost cats or about other things that are not quite so interesting. Reconnecting children with uncles, aunts, grandparents and wider family is a way of ensuring that they have a greater network to fall back on in times of crisis, rather than having to rely on the state.
I remember once doing a case in Chester county court. The judge was on the cusp of making a care order to take a child permanently into the care of the local authority with a plan for adoption, but at the last minute, the guardian representing the child asked—perhaps in hindsight—the rather obvious question: “Have you asked any of the wider family whether they would be willing, either individually or collectively, to help to look after this child?” The answer came back, “No”. The case was adjourned, some work was done with the family, and a few months later, we came back to court and the plan had been changed: the child was going to live with their aunt, and other family members would be involved as well. That type of work with children who may be going through a period of crisis in their own home, and the involvement of families, has to happen at an earlier stage and has to happen everywhere. The recommendation on family group conferences, or family-led alternative plans for care, should be taken seriously.
On residential care, I think it worth recognising that in England, about 14% of children in care are now in residential care. In Scotland, that figure stands at only 7%, which begs the question: why? For me, it falls back to the important point raised by the hon. Member for York Central about the use and understanding of foster care. We know—Ofsted have shown this—that there is a worrying increase in the number of children whose care plan is for fostering but who end up in residential care. Why do they end up in residential care? Because they cannot find a placement in foster care—or cannot find the right placement. It also means that we are losing foster carers who have a particular specialism, perhaps in teenagers or—like my parents—in babies born addicted to heroin, for whom particular skills are needed. That placement is lost because they are the only carers available for another child who could be in a different type of foster placement.
We need a real recruitment drive for foster carers. We have seen, through the Ukrainian refugee scheme, that there is a huge amount of will out there—people want to reach out—but there needs to be some greater voice coming from Government about how we find the 9,000 carers whom we need and about the range and spread of where foster carers are. Otherwise, we will put more pressure on residential care and prices will go up exponentially. It just does not make sense to keep putting more children into residential care when that is not even their plan and there are financial consequences to doing so.
Mr Robin Walker (Worcester) (Con)
I have been listening with great interest to my hon. and learned Friend, who speaks with enormous experience and knowledge in this space. On the point he has just made about foster care, and the related point about family carers, does he agree that investing in the right support packages for foster and kinship carers is a good investment if it prevents more children from going into much more expensive residential care?
Edward Timpson
My hon. Friend the Chair of the Education Committee is absolutely right. The Mockingbird project, which was mentioned by the hon. Member for York Central, is a good example of that—again, the innovation programme helps to fund it. The project has a network of foster families who offer different levels of skill between them, but collectively provide a great resource and ensure that children can stay in foster care when it is the right placement for them, as opposed to going into residential care homes that cost tens of thousands of pounds and often do not bring stability or the right type of surrounding care that the child or young person needs.
On workforce development, we have done a lot of work in the last decade to improve the quality of what we want social workers in the very specialist world of children’s social care to be able to demonstrate. There was far too much emphasis on theory and not enough on the practice, particularly real-life experience of a child-protection event, which a children’s social worker will inevitably experience. The “Step up to social work” programme and Frontline, which were introduced to try to improve and grow the social workforce, have been really important innovations, but 70% to 80% of social workers coming into children’s social work are still qualifying through the traditional route, costing about £80 million a year.
There has not really been any change or re-evaluation of how that money is spent and of what comes through the system. I think there is a question about how we can level up some of those conventional routes, better support people through that experience as well, and ensure that, when they are working on the frontline, they have all the skills and the resilience they need to stay with children’s social work, because retention, as ever, remains an issue. I agree that the early career framework will be a good way of mapping out a clear pathway to a career in children’s social work.
On the duties that are placed upon the key agencies, we introduced the corporate parent principles in the Children and Social Work Act 2017, but they are limited in some respects. I agree with Josh MacAlister that we can do more to widen those principles out and bring them more to life. That brings me to the five missions on care leavers: loving relationships, quality education, a decent home, fulfilling work, and good physical and mental health. I do not think any of us would disagree with those missions, but how do we hold those with responsibility to account for achieving them? The local offer that goes with the corporate parenting principles is one way of doing so, but we have to go back to inspection and look again at how we measure success for care leavers and how we target the role performed not just by local authorities as the lead for children and families, but by other agencies.
On care leavers specifically, if I were to ask the Minister to take away one thing that could be done very quickly and make a huge difference, it is action on the universal credit limit for under-25s. At the moment, care leavers fall into that category, so they have the reduced rate. Of course, we heard earlier about the cliff edge and what happens to care leavers not just from the ages of 18 to 21, but from 21 to 25, which is a vulnerable time for them. This would be an easy opt-out. I know—from conversations I had when I was a Minister—that the DWP does not like exceptions, but it can be done, so I ask for that to be looked at. Let us find reasons to do it, not reasons not to.
There is much, much more in the review, and I think it is something that has to happen. I know that the Government were committed to publishing a response by the end of the year, but we are getting close to it—the Christmas music has started in the shops—so we do not have long left. Will the Minister commit today to publishing the Government’s response in full as soon as possible? If the response slips beyond January of next year, it is in real danger of putting at risk the timetable for delivery, particularly in relation to spending reviews—the consequence being that it would end up costing a lot more for the Government in the future.
We spend £136 billion a year on the NHS and £51 billion a year on education—I do not quibble with that—so when looking for this £2.1 billion, we must remember that it is a one-off payment that will, over the next four years, give children in the system now and in future a much better opportunity to have a fulfilling life. Yes, look at the underspends in the Department for Education, but look right across Whitehall, too, because every Department will benefit from these changes. The money is there if the measures are prioritised, and I hope that that is exactly what happens.
Dr Mullan
People who foster and adopt are the best of our society; there is no two ways about it.
Similarly, on kinship carers, the report does a great job of explaining how a wider family network can help. As a Conservative, the idea of giving more financial support for kinship carers causes me questions. I believe in families and normal family structures. I think it is the natural thing for family members to take care of each other potentially outside the immediate family. But when it comes to the very, very difficult financial decisions that grandparents on pensions, in particular, have to make, we have to be practical and recognise that, yes, I would want people to do that for their family members regardless of the support available to them. If that is a genuine practical barrier, it could make a huge difference for the children and the state, and we should be doing more. I support the idea that the model of support should match that of foster carers.
Mr Robin Walker
My hon. Friend makes a fair point on kinship care. I note that the report also calls for greater recognition of kinship carers. Not all the support they need is financial. I have been approached by a local kinship care group in my constituency with concerns about the challenges that grandparents sometimes face in accessing healthcare. He knows a lot about that. Does he agree that it would be good to see the Department for Education working with colleagues in the Department of Health and Social Care to ensure that we have greater support and recognition for kinship carers, so that they do not face those challenges?
Dr Mullan
My hon. Friend is absolutely right to identify that it is not just about money; it is about recognition in Government agencies and society of the role that kinship carers play. I pay tribute to kinship carers in my constituency, who I have been supporting to access financial support from the local authority, and to some great charities that support kinship carers. They deserve to be on the same footing as those who foster and adopt.
I want to finish by paying tribute to a couple of charities working in my constituency on areas similar to some of the work recommended by the MacAlister review. One of the many things that the Motherwell Cheshire charity for young women and girls, founded by Kate Blakemore, does in my constituency is the Believe project, which provides support, mentoring and counselling to any mother, young or not so young, who has a child who is, or is at risk of being, subject to some kind of child protection plan. What the charity has learnt is that, rightly, the authorities and those involved in child protection are focused on the child. They need to do that, but support for the parent can also make a huge difference. I have spoken to mentors, such as Donna, who support people in my constituency and they have made a difference. The latest figures are that they have saved something like £1.6 million in our local area, helped five children to return home from care and helped to prevent 21 children from going into care. If that sort of model can be rolled out, there could be huge moral and financial savings.
Another charity, Pure Insight, provides mentors, counselling and psychological support for care leavers. The mentors and support workers help them to close the gap with their peers who have not experienced care. It is largely volunteer-driven and they make a huge difference. Similarly, the charity also provides support to help parents become the best possible parents they can be. Ultimately, the ideal scenario is that we can keep families together. Of course, sometimes families cannot stay together and it is right that we intervene, but if we can keep families together, we know the outcomes are much better for the children concerned. I want to put my thanks on the record to the local Helvellyn Foundation for providing a grant to Pure Insight to support a family I was in contact with who did not quite fit the normal criteria but who were a fantastic candidate for that type of support. There are so many other charities, such as the Wishing Well charity and My Cheshire Without Abuse, that are playing their role, supported by volunteers.
For all those reasons, I hope that the Government will grip this issue, take on board the fantastic work that has been done in the MacAlister review and make a difference to these children’s lives. That is the right thing for us to do not just as moral individuals, but as taxpayers. There is always a great case to be made for what the Government can do, too, when we are talking about doing the right thing for the right reasons.
The Parliamentary Under-Secretary of State for Education (Claire Coutinho)
I have been asked to keep my comments relatively brief, so I hope I can do justice to this tremendous debate and set out some of the Government’s vision.
I start by thanking the hon. Member for York Central (Rachael Maskell) for a moving and passionate speech, which I am becoming used to hearing from her, and my hon. Friend the Member for East Worthing and Shoreham (Tim Loughton), who has been generous to me with his time and experience, for securing this important debate. I also thank all Members for their contributions. I look around the Chamber and see former Ministers, former care workers, former councillors and the newly elected Chair of the Education Committee. They have a huge amount of experience and compassion, and we heard the very best of the House today. I look forward to working with all of them, and I am overjoyed to see the wealth of enthusiasm for these changes.
I also thank all those who led and contributed to the vital reviews this year, and many Members listed some of them, including Josh MacAlister, Annie Hudson, the rest of the national panel and the Competition and Markets Authority team, as well as the children and young people in care and their families, who contributed and made these reports so powerful. I particularly thank Josh, who many Members mentioned today. He has been rightly praised, and he has worked closely with us since the publication of his review to encourage the depth and breadth of our ambition.
There is a lot that is good about children’s social care, as all the reports have set out this year and, indeed, over a decade, and as Members have shown today. The dedication of social workers, family support workers, directors of children’s services, foster carers, kinship carers and others up and down the country who work determinedly to improve children’s lives deserve our fullest praise. Many children who have been supported by children’s social care go on to lead happy and fulfilling lives. That is a testament not only to their resilience, but to the quality of the help and support they have received when they have needed it.
However, the message from these reports and from the many excellent contributions made today is clear: the system is not delivering well enough, or consistently for the children and families it supports. Less than one month ago, I was given what I believe is the most important job in Government—it is excellent to hear that people who have held it previously agree. No other role provides such a huge opportunity to change children’s lives for the better. That is why, when my hon. Friend the Member for Colchester (Will Quince), the then Minister for children and families, came to this House six months ago, this Government committed to taking action from day one, and I am pleased to update the House today on some of our progress.
We have already established a national implementation board and I chaired a meeting of the board last week. Hearing the experiences of the people who are care-experienced on it, as well as the wealth of experience of Josh, our Children’s Commissioner and others, has given me huge confidence in its ability to help us to achieve the full extent of our ambitions for children.
We have also set up a new child protection ministerial group, and launched a data and digital solutions fund. I know that many Members talked about the importance of sharing data to encourage joined-up working. We are working to increase the number of foster care placements. My hon. and learned Friend the Member for Eddisbury (Edward Timpson) has excellent real-world experience in this area and is pushing us to be ambitious. I want to be ambitious in this area too. That is what we are getting on with already.
Many Members have also rightly pressed me on the contents and timing of the delivery of the implementation strategy. I want to assure them that this is the thing that is keeping me up at night. It is a huge priority. I committed to publishing our implementation strategy early in the new year and I look forward to returning to this House to set out our plans in full. I am sure I will see many Members return to scrutinise them.
Today, I can share some of our vision and ambitions for the future system. The Government believe in the power of opportunity, which is why levelling up was at the core of our manifesto in 2019, and it is our belief that the roots of opportunity start with the power and importance of family. With the right support, families are the best means of protecting, nurturing and promoting the interests of children, now and forever. As the care review said:
“We all have a part to play and it starts with love.”
Our ambitions for reform will reaffirm the central role of families in the care system, and put love and stable relationships at the heart of what children’s social care does. Children should grow up in loving, safe and stable families. That is where they can achieve their best. Where that is not possible, it is right that the care system should take swift and decisive action to protect them. But care should also provide that same foundation of love, stability and safety. That is what all children and indeed what all of us need to thrive.
Jim Shannon
I asked about the advocates. The figures I have from back home show that only three in 10 children have an advocate. I asked whether it would be possible to look at that process to ensure that every young child has an advocate so that they can plan their way forward in a structured fashion.
Claire Coutinho
I thank the hon. Gentleman for his intervention and I will be looking at that carefully. The heart of what we want to do is to make sure that all people have these powerful relationships in their lives. As he ably pointed out, that is what we expect for our friends and families and actually everyone deserves to have those people who will go the extra mile for them.
On our ambitions for this area, first, I come to our ambition for families. Many Members spoke eloquently about the importance of families. They are at the heart of what makes us happy and well, so when families are struggling we should provide rapid and intensive multidisciplinary support at the right time to help to fix the issues. Lots of Members talked about early intervention and I completely agree that that is the core issue here. We want to make sure that our programmes improve early help services from birth to adulthood. We want to build a strong evidence base on what works to support families to turn around difficult situations, and I would particularly like to thank the Children’s Commissioner for part 1 of her recent excellent review of family life. There was a comment from the shadow Minister about our lack of ambition in this area. I gently point her towards our ambitious reforms on domestic abuse and on drug and alcohol addiction, reducing parental conflict. We talk about prevention to make sure that people are not suffering from the kind of trauma that the hon. Member for Bath (Wera Hobhouse) set out movingly. These programmes are both important and exactly the right place to start.
Rachael Maskell
What keeps me awake at night is knowing that poverty levels are rising sharply. It is those pressures on families that often lead children into the care system. Given that the report did not have the remit to look into the intersection between poverty and the challenges that families face, will the Minister ensure that she puts more pressure on her Government to put the protection around families so we do not see children having to go into the care sector?
Claire Coutinho
As someone who has been working on the cost of living challenge for the past 18 months, I can say that it has been a priority of this Government, during the pandemic and into the energy crisis, to support the most vulnerable households. That has exactly been our impetus in these times.
Our second ambition is for child protection. The murders of Arthur and Star have sickened us all. The recommendations of the national panel aim to ensure that such terrible incidents are as rare as possible and, when children are at risk of harm, to ensure that we intervene quickly and decisively through a more expert and multi-agency child protection response. The hon. Member for Bath had a question about developing our understanding of sibling sexual abuse. Nothing in this area should be taboo. We are looking at the evidence base via our child sex abuse centre. I am happy to discuss these things further with her.
Local authorities, police and health services are under statutory duties to work together to safeguard children. We will use the recommendations of all the reviews to support them.
Thirdly, on foster care and kinship care, I agree that the John Lewis advert was touching, providing an exciting opportunity for us to talk more about this area. Where children cannot be looked after safely by their parents, we should properly support wider family networks to step up and family-like environments. At the moment, there are practical, financial and cultural barriers to some of this, particularly some of the ethnic disparities that have been mentioned today. But moving in with a relative or people from one’s own community provides a strong chance of achieving the kind of lifelong stability that children need. We need to encourage the system always to look to wider family before care outside the family and to help to equip families to do this where that is in the child’s best interests. Many Members also mentioned adoption. We set out a strategy last year and that will also be an important part of our solution here.
Our fourth ambition is for the care system. Where family is not an option, the care system should provide stable and loving homes. Again, I echo the hon. Member for Strangford (Jim Shannon), who said that it was very sad that some people do not have what other people have: a loving family home. The care review found that supporting children in the care system also needs to be focused on outcomes. That has been widely discussed today and it is absolutely right. My hon. Friend the Member for Meon Valley (Mrs Drummond) movingly set that out, saying that we must focus on the outcomes. I also pay tribute to John from Plan B who sounds like a thoroughly brilliant man in all the work that he is doing to help people in this regard.
The number of times that children move homes was mentioned in a couple of speeches. Care-experienced people whom I have spoken to in the past couple of weeks talked about children moving 21 times. That is not the kind of situation that we need to set up the relationship that we think are so important for people.
While we are considering all the recommendations to support young people and to get those outcomes that we have been talking about, we have also been working in close partnership with Departments across Government and with Ofsted. What is clear is that the continuing status is not an option, although I gently say to the shadow Minister that the trajectory has been positive and that there has been a huge amount of work from dedicated teams to try to get that good and outstanding level from 36% to 55%, and to reduce the number of local authorities that have been judged to be inadequate. I pay tribute to them for their work. Of course, we must continue. We must not accept any failure in this area, but they have done exceptional work so far.
Our fifth ambition relates to the workforce, which the hon. Member for York Central, who I know has great experience in this area, my hon. Friend the Member for Meon Valley and my hon. Friend the Member for Ruislip, Northwood and Pinner (David Simmonds), who is always so interesting on this issue, all talked about. We must equip the children’s social care system with the people and tools it needs to do a good job of supporting all those who need its help. That means a skilled and empowered workforce, better data and transparency and clear system direction.
We have committed to a national framework for children’s social care and are working to publish a draft of that alongside the implementation strategy. We will also continue to work closely with Ofsted, which plays an important role in the intervention and improvement programme.
Finally, by far the most important factor in achieving success will be the people delivering the vision. I am sure this House will join me in paying tribute to every social worker and all those supporting children, such as workers in children’s homes and foster carers. They are there tirelessly, day in, day out, providing support to children and their families. We will bring forward proposals to support the workforce and foster carers to ensure they have the right skills and strong leadership.
I am proud to be responsible for a system that has been shown to help children to recover from traumatic experiences and often to succeed against the odds, but the children’s social care system cannot do it all. A young person’s success is driven by many different factors and actors. I want other parts of the local council system, the school system, the health service and many others within and outside Government to do all they can to give our children the best possible start in life. Children’s social care cannot do it alone and we cannot do anything at once, but this is a programme for a long-term, once in a generation reform. We will start by laying the foundations for a system that is built on love and the importance of family.