Children and Social Work Bill [HL]

Debate between Earl of Listowel and Lord Bishop of Durham

Monday 4th July 2016 Grand Committee

[The Lord Bishop of Durham]

My Lords, I also support this amendment. I apologise for not being here for day one but at Second Reading I explained that I would not be able to be present last week. At Second Reading, there were a number of clauses—this is one of them—where I was concerned that the work of independent fostering agencies, adoption agencies and the voluntary sector as a whole, which provides increasing support to children in care and leaving care, was hardly noticed. We need to keep on top of that. We should not restrict its growth but we should ensure that it is joined up with what is required of statutory authorities and that quality remains high. In supporting the amendment, I hope consideration will be given to that area of work as well in any future redrafting.

[The Earl of Listowel]

Very briefly, I recognise the concerns expressed by the noble Baroness. So much money might be saved if the right agencies worked with local authorities. It is hugely expensive to keep a child in a children’s home. If that child could be kept in a foster placement because there was adequate early intervention from health, for instance, the local authority could save a lot of money. There is room for negotiation—perhaps health could pay half the cost and the local authority could pay half the cost of an intervention, or there could be some other variation. But it could save local authorities huge amounts of money if the right intervention was made and the right agency worked in partnership with them.

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[The Earl of Listowel]

My Lords, I am sure the Grand Committee is very grateful to the noble Baroness for tabling these important amendments and bringing this issue back to us. I pay tribute to her and her colleagues for introducing the teenage pregnancy strategy while they were in government. After many years, it brought down the level of teenage pregnancies. It is not equivalent to that of the continent but at least it is moving in that direction. It has been a most important success.

Listening to the noble Baroness, I was reminded of a 24 year-old woman who, some time ago, attended the all-party parliamentary group for young people. The group was discussing mental health and she bewailed the fact that she had not been able to access mental health services. She had two young children whom she was really struggling with. I very much welcomed the earlier amendment from the noble Baroness, Lady Tyler, to extend mental health support to the age of 25. At the APPG the 24 year-old bewailed the fact that, even if that was changed, she would be too old to benefit from it by the time it came into effect.

Last year the Maternal Mental Health Alliance launched a very important report into perinatal mental health, identifying the extent of perinatal mental health issues and the cost to the nation of failing to meet them. This group of young women is particularly at risk of perinatal mental health issues. The charity Best Beginnings does much work in this area and published a video that looked at a young woman as she was suffering from postnatal depression. It covered her experience of having a poor relationship with her mother because of her boyfriend, who did not understand her situation, and a GP who just did not have time to talk to her. She suffered a gradual spiral into depression and lost any patience with her children. She was not a young woman in care but one could easily see the same situation arising for such a person. She desperately needed help but she did not know how to ask for it. I hope that the amendments will make us think more about what we can do to reach out to these young women and ensure that they get the right help.

There is increasing support for women during pregnancy. The Government have invested more in perinatal mental health, and in particular there are models of what I call “caseload midwifery”—one-to-one midwifery, where the midwife makes a relationship with the parents early in the pregnancy, maintains that relationship and ideally is there at the birth. That model of service could be very helpful to these young mothers.

There has been a lot of recent research into neurodevelopment. Some of it has looked at the neurodevelopmental plasticity of infants, and it has been found that adolescents go through a further major neurodevelopmental change. There is also evidence that women show some plasticity in their neurodevelopment in childbirth because of the powerful relationship with their infant. However, there is a great risk that becoming a mother at an early stage will be too much of an experience for some women to manage. Their early experiences in infancy may prevent them being able to mother their children adequately, but there is also the opportunity for it to be a key turning point in their lives, where they learn to love and be loved for the first time. We need to be there for them as far as we can to make sure that that is the outcome—that it is a turning point in their lives and a positive experience for them and their child. Therefore, I am very grateful to the noble Baroness for moving her amendment and I look forward to the Minister’s response.

[The Lord Bishop of Durham]

My Lords, I feel that I could already write the Minister’s response by saying that of course these needs are already met in Clause 3(5)(a) or (b), as the subsection refers to meeting “his or her needs”. However, when, year after year, report after report notes that these needs are not dealt with, surely we reach the point where they need to be specified—hence I support the noble Baroness’s amendments. The needs of these young parents have so consistently not been adequately met that we now need to specify them so that they are.

I would also comment that, on occasions, young men may also find becoming a parent a positive turning point. There is a need to support young men who are looked after and become parents who recognise that they have now come to a point of responsibility and they would like to step up to it. They also need support. I invite the Minister’s comments on that.

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[The Lord Bishop of Durham]

My Lords, I rise to express not dissimilar concerns to the noble Baroness, Lady Howarth. I firmly support the tenor of what is proposed, but at the same time I go back to Second Reading when the noble Baroness, Lady Hughes, raised the question of foster carers. Some foster carers will rail against the professionalisation of advice. If we believe that there needs to be flexibility in the range of personal advisers, we need to beware of the Bill being so constraining that we lose that flexibility. They have to be securely and safely recruited and vetted, and we must ensure that there is ongoing support. The concern just expressed about the vulnerability of an individual personal adviser also needs to be heeded. I wanted to place on record a concern that this is something that must still be wrestled with. We have not got to the bottom of the right answer yet, either with what is in the Bill or in the guidance. This will be another example of where the guidance needs to be seen before Third Reading.

[The Earl of Listowel (CB)]

My Lords, I very much appreciated the 1992 report of the noble Lord, Lord Warner, Choosing with Care. I have referred to it many times during my career in this House. I find it extremely helpful and illuminating, and in visiting children’s homes, I know how helpful they have found it. There is even something called the Warner interview in which they are instructed to look back over the CV of the applicant to see if there are ever any gaps and probe the applicant on what they were doing in those gaps. It was very influential and important.

I also emphasise what noble Lords have said about the first line manager or supervisor. Recently at a conference, I heard from the chief executive of Frontline, which trains social workers. He produced evidence that where there was an excellent supervisor and manager, even in a poorly functioning local authority, newly qualified social workers could do well and be resilient. Dame Claire Tickell was commissioned to produce a White Paper for social work and she emphasised the need to train first line managers strongly. I welcome what the Minister has said so far about how he sees the Government helping to develop this personal adviser role. I hope that he will also look at their supervision and their first line managers and how those need to be developed.

Finally, on the issue of flexibility versus rigidity, there are strengths to both sides of the argument. I hope that we can find a marriage between the two. My concern is that there are huge burdens on local authorities’ resources at the moment, and unless one is very specific in terms of the personal adviser profession, we may find huge disparity in quality and that our young people may not get delivery of what they need. At the same time, there needs to be flexibility where someone knows that young person and they have a relationship. We want continuity of relationships and we want foster carers, teachers or friends to be supported to be able to deliver that. We want to allow that role to be given to the foster carer or whoever. This issue is complex. This is a helpful debate and I look forward to the Minister’s response.

Welfare Reform and Work Bill

Debate between Earl of Listowel and Lord Bishop of Durham

Monday 25th January 2016 Lords Chamber

[The Lord Bishop of Durham]

My Lords, I start, as I began my speech in Committee, by recognising that everyone in this House has a shared commitment to tackling child poverty in this country. We all want to see the end of child poverty; I am sure that no one in this House would want deliberately to keep children in a state of poverty. This debate is, therefore, not about the ends but about how we monitor progress towards that goal. Previously, I expressed my agreement with the Government that to maintain that income poverty alone is an adequate way to measure child poverty is no longer sustainable. I agree that there are other root causes, such as lack of work, low skills, poor housing, family instability and addictions, which must be recognised and tackled. But then we must also remember that many children in poverty are in families where a parent is in work; these children are currently trapped in poverty. I, along with the many organisations that work in this area, remain convinced that financial poverty is a crucial matter that must be recognised and reported on adequately.

It is, of course, possible to overstate the importance of material well-being alone. Many other things matter in children’s lives, including loving parents, good schools and safe neighbourhoods. They are all needed for children to thrive and achieve their potential. But it is also possible to understate the importance of income, or the lack of it—especially among those of us who have plenty, and perhaps take such things for granted. According to the latest deprivation statistics, 1.7 million children live in families that cannot afford to heat their homes properly, 1.3 million children lack the funds to take part in at least one organised activity each week, and 1.1 million children cannot afford to have their friends around for tea or a snack once a fortnight.

We know that money matters, because this is the experience of people in poverty, and of the many organisations and charities that work with them daily. There is also a wealth of academic evidence pointing to the damaging effects that income poverty has on children’s well-being, including their health, education and future employment prospects. We know, for example, that low income impacts on children’s cognitive ability, educational attainment, conduct problems and mental health, with serious implications for their future life chances.

Does the Minister accept that low income is an important influence on children’s outcomes and life chances, as his own department’s review of the evidence concluded in 2014? Can he explain why the Government are studiously ignoring the views of nearly everyone who responded to the consultation on child poverty measurement in 2013? According to a recent analysis by the London School of Economics, 202 out of 203 respondents to that consultation believed that income should be included in the poverty measures.

If I have heard the Minister correctly, the Government’s concern about the current child poverty measures is that they have encouraged an overdependence on income transfers, diverting attention from policies that tackle the root causes of poverty. However, the amendment does not seek to reassert the primacy of the existing child poverty measures: it simply requires that income-based measures of poverty be reported on alongside, and on a level footing with, other life chance indicators, such as worklessness and educational attainment, in order to acknowledge the significance of family income for children’s well-being and future prospects.

Furthermore, the amendment is about indicators for monitoring progress, not about targets or deadlines, so there is not the same risk that it could drive policy in an unhelpful direction. And with all due respect, the temptation to place too much emphasis on income transfers as a means of reducing child poverty is not one that the current Chancellor appears to struggle with. I agree that it is important to tackle the underlying drivers of poverty, but that can be done without abandoning all the existing income-based measures of poverty. The real issue is committing to, and resourcing, an effective long-term strategy to reduce child poverty, rather than finding alternative ways to measure it.

No economic or social indicators are perfect. Let us take the employment statistics. I note that recent trends in employment are encouraging, but those statistics do not allow for the quality of employment, and hide substantial levels of underemployment. Similarly, GDP statistics give equal weight to desirable and undesirable economic activities, and take no account of many priceless commodities. It is no surprise that existing poverty measures have flaws too.

The relative income measure, in particular, has been criticised for showing a decline in poverty during the recent recession. But that is precisely why there are three other measures of poverty in the Child Poverty Act. The absolute poverty measure is not affected by annual variations in median income in the same way. The deprivation measure, which focuses on the affordability of basic necessities, has the added benefit that it captures people’s living standards more directly than low-income measures. Nor can it be manipulated—if that is the right word—by targeted government transfers to low-income households. I therefore encourage the Minister to consider seriously the adoption of a deprivation-based measure of poverty as a way of recognising the importance of material poverty within the proposed set of life chance indicators.

The biggest gap in the proposed set of life chance indicators is that the existence of in-work poverty is completely ignored, even though nearly two-thirds of children in poverty have at least one parent in paid employment. We all agree that work is usually the best route out of poverty for those who are able to work but at present, sadly, it is not sufficient for many parents in low-paid or insecure employment. It seems inconsistent that, while introducing a national living wage and in-work conditionality to encourage people to look for better-paid jobs, any reference to in-work poverty in the indicators is omitted from them, and they will be used to monitor progress. This is why I also support the amendment in the name of the noble Baroness, Lady Lister, to introduce an indicator of in-work poverty alongside the worklessness indicators.

I anticipate that the Minister will respond by saying that the existing poverty measures will continue to be published and will be available for everyone to scrutinise each year. However, without a statutory reporting requirement, there will be nothing to stop a future Government or the Office for National Statistics, if it is its decision, from ceasing the annual production of the HBAI statistics at some later date. Dropping these measures also sends a clear message that income-based poverty does not matter to this Government, which, unless I am mistaken, is not their view or the Minister’s view.

In conclusion, first, I thank the Minister for offering to meet with me. My apologies: I could not make it but my daughter’s graduation trumped him. I note that consistently in response to our previous debates, the Minister has argued that the Bill is but one part of the Government’s programme to move towards a society with more people in work, on higher wages and paying lower taxes. He has noted other measures, such as the national living wage, the increasing thresholds for paying tax, and others, stating that these measures combined will raise the living standards of many. Of course, this is disputed by others. However, my point here is that since the Government are confident that their measures will be successful, they need have no fear of a statutory duty to report these income figures. Indeed, they should welcome it as a clear statement measuring their anticipated success. I commend the amendment and beg to move.

[The Earl of Listowel (CB)]

My Lords, I support the right reverend Prelate and thank him for moving this amendment, to which I have added my name. I will mention two principal reasons for my doing so. One is a concern that I think and hope is shared around the House: the changing nature of a Parliament and the experience of families that grow up in poverty. It is very easy to avoid meeting families in poverty. Many of the leaders of this country will perhaps have been educated privately from a young age, and there may have been few reasons for them to come into contact with families in poverty. They may never have worried about where the next meal will come from or whether they can afford to heat their homes, and they may not mix with people who have those worries. My personal experience of course is that I and my family have never had to worry about whether our home could be heated or whether there would be enough money for the next meal. However, the families we are talking about worry about whether they can feed their children and whether they will have to go without a meal to feed their children.

I recently met with Ms Lorna Sculley, who is a 36 year-old and has three boys: the oldest is 15 and the youngest is fairly new-born. She works for 16 hours a week and lives in poverty, so she is one of the “working poor” that the right reverend Prelate described. During her last pregnancy and maternity leave, there were difficulties with her benefit payments, which meant that she got into debt and had difficulty in meeting her rent. She became increasingly desperate. Fortunately, there was a food bank local to her. With the help of the education welfare officer, she was referred to the people running the food bank and she sought their help. Not only did they provide much-needed food for her and her boys but they gave her advice about how to negotiate with the benefit system and to catch up as much as possible. Unfortunately, I think that it is possible to get only a three-month rebate if one has had these sorts of slips, so she could not gain all the money that she needed. She also told me that, because she is working, her boys are not entitled to free school meals and it can be particularly difficult to get severe hardship payments. Her two older boys had destroyed their mattresses by jumping up and down on them but it was hard to get the money to replace them.

Welfare Reform and Work Bill

Debate between Earl of Listowel and Lord Bishop of Durham

Monday 25th January 2016 Lords Chamber

[The Lord Bishop of Durham]

My Lords, I support this amendment. Yesterday, I spent a delightful evening with a small number of academics after preaching at Evensong in an Oxford college—Worcester College. It was a very pleasant evening. However, as I sat there, I kept coming back in my mind to today’s debate because I was reminded of the extraordinary privilege of being in an Oxford college and the elite nature of it. This is not to criticise it or put it down; I had the privilege of studying in a private hall in Oxford when I trained for my ordination. However, I found myself thinking about the vast number of children and young people I meet in schools and colleges around the north-east, and have met in other parts of the country over the years, for whom such privilege is not their aim. Most of those I meet do not talk or think about being socially mobile. They do talk, however, about wanting a decent home and growing up and finding a good job on a decent wage. They also talk about having a stable, loving family through their childhood and wanting to create stable, loving families in the future. Those are the hopes and dreams of most of them. I believe that we have a lot more work to do on aspiration levels. I would love more of them to dream that one day they could go to Oxford or Cambridge, and that they can be significant players in their own communities and transform them, because that is where most will do it. Of course, we all know people who make huge impacts on their local community because they believe in it.

Social mobility is simply too narrow a focus. I absolutely support the move to the term “life chances” as a better expression of a broader base on which to think about these matters. I am not a great sociologist, but I went back to Max Weber, who was the first person I could find who talked about life chances and who introduced the concept of social mobility. In that, he talks quite clearly about social mobility being only one of the factors. He also talks about social stability, social cohesion and social integration. These are at least as significant and, for large numbers of people, they matter as much as, if not more than, social mobility.

Life chances around worklessness, educational attainment and, indeed, income are a broader-based way of assessing poverty. They will tell us more about the health of society than simple social mobility. Changing the name of the commission will absolutely reflect more closely the intention of the Government and offer a way of monitoring progress and feeding into it through the commission’s work. It matters and it would be nice to have a commission with a title that children themselves recognise, understand and could talk about and debate in their schools. How much they would, I do not know, but the idea of a title that they relate to is very valuable. This is intended to be helpful. To call the commission the Life Chances Commission fits absolutely with what the Government are aiming at and will help serve that aim better than the simple, narrow focus of social mobility.

[The Earl of Listowel]

In listening to this debate, I find myself sympathetic to the notion of social mobility but I also think of the play “Macbeth” and of Macbeth and his wife. There is a risk, I suppose, if one puts too much weight on social mobility, of a society which is red in tooth and claw. The addition of the words “Life Chances” balances that. Your Lordships may also remember the series “Seven Up!”, which I think started in the 1970s and followed 10 children through their lives into adulthood. To my mind, the happiest life in the group was that of a young black boy who grew up in foster care and then went on to become a butcher, marry and have a family. He seemed the most contented of the lot. To be able to achieve a stable and loving family is also important to society, so it would also be helpful to measure that.