Oral Answers to Questions
Edward Timpson Excerpts(8 years, 5 months ago)
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Keir Starmer (Holborn and St Pancras) (Lab)
1. What support the Government provide to children with autism in the education system; and if she will make a statement.
The Minister for Children and Families (Edward Timpson)
On behalf of Conservative Members and, I am sure, the whole House, let me echo the sentiments that have just been expressed about the Davis cup victory of the Great British team. It was good to see the Scots leading the way in ensuring that we had our first Great British victory in about 70 years.
The Children and Families Act 2014 introduced significant reforms so that children and young people with autism could be better supported in education. The reforms have rightly focused on needs and aspirations, enabling all pupils, including those with autism, to achieve better outcomes in education and adult life. The Department is also funding the Autism Education Trust to deliver training to staff, the National Autistic Society to help to reduce exclusions, and Ambitious about Autism to support transition to college.
Keir Starmer
Netley primary school in my constituency has a fantastic resource base for 25 children with autistic spectrum disorders. Many of them are making excellent progress, but one of the concerns raised with me is that Ofsted’s published data for the school, which includes children from the resource base along with other pupils, do not adequately reflect that. Does the Minister agree that Ofsted data should clearly take into account the specific needs and challenges of children with special educational needs such as autism, and will he agree to meet me to discuss the specific case of Netley primary school?
Edward Timpson
I should be happy to meet the hon. Gentleman to discuss what Netley primary school is doing, and some of the challenges it faces in the hon. Gentleman’s constituency. We obviously want to ensure that every child, irrespective of his or her needs, is receiving the best possible education, and we are introducing progression measures throughout the school system so that every child’s progress counts towards a school’s overall performance. We shall also be introducing the first ever special educational needs inspection framework, along with both Ofsted and the Care Quality Commission. I am sure that that will help to deal with many of those issues, but I should be happy to discuss them further with the hon. Gentleman.
Ben Howlett (Bath) (Con)
One of the key challenges for those with autism and Asperger’s is the transition between leaving school and attending university, which is a big step for young adults. Will the Minister join me in welcoming an initiative by Bath university, which hosts an annual autism summer school that gives young people with autism spectrum disorder a chance to experience all aspects of university and student life, and does he agree that it should be rolled out in the rest of the United Kingdom?
Edward Timpson
I am delighted to hear about the great work that is being done in my hon. Friend’s constituency. I know that Bath university has a good and proud record of supporting all vulnerable children, but it is important for those who have autism to be given the same opportunities to move on to higher education. There are independent institutions, but, through the new code of practice and our special educational needs reforms, we have tried to bring forward the time when assessments take place to ensure that all children with a special educational needs background who have the potential to go on to higher education are given support as soon as they arrive at university, so that they can thrive and move on to better things.
Joan Ryan (Enfield North) (Lab)
I recently spent some time at Durants school, a secondary school for pupils with autism in my constituency. It does a fantastic job, but one of the big problems is that so little support is available to students who could leave and go into employment or training beyond secondary school. Will the Minister undertake to meet me, and the head teacher of Durants school, to discuss the problem?
Edward Timpson
My diary is filling up, and we are only on the first question. There is more that we can do, and the whole thrust of the special educational needs reforms is to move towards an ambitious birth-to-25 system so that those who have the potential to move on from secondary school into college, apprenticeships, university and the world of work have every chance to do so. In some areas of the country, the new supported internships have seen the number of young people moving into employment rising from around 15% to 70%. We know that there is more we can do through different routes, but we need to make them available to more young people. I am happy to discuss with the right hon. Lady how we can do that.
Mark Pawsey (Rugby) (Con)
It is good to hear about the Government’s support for children with autism. Will the Minister join me in welcoming proposals for additional resource in Rugby from MacIntyre Academies, who are setting up a new special free school specifically for children with learning difficulties?
Edward Timpson
I am very pleased to hear about the initiative in Rugby, which is one of many across the country that is using the new free schools programme to bring about a whole range of specialist schools for those with special educational needs. I think that that will include five in the next tranche of free schools that are specifically for children and young people with autism. This is a great step forward and it is good to see Rugby leading the way.
Bill Esterson (Sefton Central) (Lab)
The Minister mentioned the importance of staff training in his initial answer, and I wonder whether he could comment further on the importance of building awareness and understanding among teaching staff, so that children with autism and many other children with poor mental health and other additional needs really get an opportunity to develop and thrive in mainstream schools?
Edward Timpson
I have just come from a conference organised by the Nuffield Foundation, at which we heard that a new report on the educational attainment of children in care—the vast majority of whom have some form of special educational needs—was advocating exactly that. It proposed more training for the whole care workforce and all education staff. Through funding from the Department, the Autism Education Trust has trained more than 80,000 staff in schools, but we need to do more to ensure that there is consistency right across the country, so that all those children get their chance to thrive, irrespective of background.
Mrs Sharon Hodgson (Washington and Sunderland West) (Lab)
To improve the provision of special educational needs and disability support for young people, including those with autism, it is vital that the best quality data are collated and the results shared to establish best practice. As the Minister knows, I was successful in bringing forward a private Member’s Bill in 2008 to ensure that data on special educational needs were collated and published. However, that legislation has since been repealed by the Children and Families Act 2014, and many charities have told me that they now find it increasingly difficult to obtain that information. Will the Minister therefore give me an assurance that the data will continue to be published annually and to be made readily available to all bodies in the sector, including me, so that issues can be highlighted and improvements made?
Edward Timpson
I will look carefully at what the hon. Lady says. Another of my diary appointments is a meeting with her tomorrow to discuss this—and, I am sure, a whole range of other issues that cross my brief. I am conscious of the need to ensure, through the publication of the local offer that every local authority now has and through the increasingly rich data that are available on children with special educational needs, that we use those sources to inform our decision making on how we support children. I will use my meeting with the hon. Lady tomorrow to extrapolate the matter further and see what progress we can make.
Mr Laurence Robertson (Tewkesbury) (Con)
2. What progress she has made on introducing a national funding formula for schools.
John Mann (Bassetlaw) (Lab)
12. What discussions she has had with the Secretary of State for Communities and Local Government on the potential contribution by city regions to developing educational provision.
The Minister for Children and Families (Edward Timpson)
The hon. Gentleman will be pleased, I am sure, to learn that the Secretary of State regularly meets Cabinet colleagues to discuss a range of issues. City regions can certainly play a role, as seen from our work with Greater Manchester on a review of children’s services, and we already have combined authorities in Sheffield and Manchester leading the area reviews of post-16 education provision. We expect new combined authorities and city regions to work closely with the eight regional school commissioners.
John Mann
That was a bit of waffle. Is it not a good idea formally to link secondary academies with city regions so that the economic development and education potential can be rolled together? Will the Minister take that forward to other Ministers and get it properly on the agenda?
Edward Timpson
The hon. Gentleman has a habit of calling anything that anyone else says waffle. I have described what is happening, which is devolution, which I am sure he will welcome, as the area in which his constituency is located is looking to create a combined authority. We have the regional school commissioners doing excellent work, holding each area to account and making sure that regions are raising the performance of schools and education across their area. I am sure that is something he would welcome in Bassetlaw and elsewhere.
Kevin Foster (Torbay) (Con)
Does the Minister agree that the bonus of city regions is that they are a way of bringing together public services, including those delivering skills and education to younger people, to create better outcomes that reflect the priorities of their areas, such as the heart of the south-west?
Edward Timpson
My hon. Friend is absolutely right. One of the advantages, of course, is that such regions bring together post-16 education and employers, which are parts of the system that we need to connect much more closely so that we deliver the opportunities that we know are out there for young people who have ambition about where their world of work will be, they have a greater understanding of what they can achieve and a much closer relationship with the businesses that want to employ them.
Tristram Hunt (Stoke-on-Trent Central) (Lab)
Was the Minister as delighted as I was on Friday when the hon. Member for Uxbridge and South Ruislip (Boris Johnson), the Mayor of London, supported Labour policy by advocating a schools commissioner for London? When will the Government accept political reality, start devolving power, introduce some democratic accountability into our schools policy and raise standards at a local level?
Edward Timpson
Like the hon. Gentleman, I am always delighted to hear from my hon. Friend the Member for Uxbridge and South Ruislip (Boris Johnson), who speaks with a lot of wisdom on a range of subjects. On this issue, the most important thing is that we devolve power to where it is most needed—to teachers and head teachers, so that they can run their schools in the free way that I know deep down he really wants them to.
Sir Simon Burns (Chelmsford) (Con)
13. What steps she is taking to ensure adequate recruitment of teachers by primary and secondary schools; and if she will make a statement.
Pauline Latham (Mid Derbyshire) (Con)
T4. What steps have been taken to encourage more schools outside London to work with charities such as Free the Children?
The Minister for Children and Families (Edward Timpson)
I recall meeting my hon. Friend a few years ago to discuss the benefits derived from the work of Free the Children. It is good to hear that she remains a strong advocate of extracurricular activities that support academic attainment and employability skills and that help children to become active citizens. That is why this year we have invested more than £5 million in building children’s character resilience, including £3.5 million in grants to help organisations across the country, not just in London, to deliver competitive sport, volunteering and social action projects.
Clive Lewis (Norwich South) (Lab)
T3. A number of parents whose children attend the Hewett academy in my constituency have made complaints about the implementation of a new uniform policy. At short notice, parents are being told that they must buy a new, full and costly uniform. Children who do not do so have been forced to attend the learning support unit—what is, in effect, an exclusion room. With limited academy accountability, what can Ministers do better to protect parents who cannot afford such upfront costs from their children being punished?
Jake Berry (Rossendale and Darwen) (Con)
T5. The Government’s ambition to make sure that every child, regardless of background and circumstances, receives a high-quality education extends to children with special educational needs, including those at the fantastic Tor View school in my constituency. One year on from the special educational needs and disability reforms, will the Minister update the House on what progress is being made?
Edward Timpson
I am pleased to hear about the work that my hon. Friend is championing in his constituency. The reforms we have brought in represent the biggest change to and the biggest opportunity for special educational needs and disability support in a generation. Good progress is being made. This is a three-year transition, but to date all councils have published their local offer, setting out the support for children and young people with special educational needs and disabilities in their area. Integrated education, health and care plans are also available for the more complex needs that have to be addressed. As I mentioned a few moments ago, we are now working, with Ofsted and the Care Quality Commission, towards the introduction of the first ever SEND inspection framework to ensure parents and young people know whether they are able to access the range and quality of services that they need.
Dr Lisa Cameron (East Kilbride, Strathaven and Lesmahagow) (SNP)
T6. Following the Paris attacks, there is a real concern that intolerance towards ethnic minority pupils could intensify. How will the Secretary of State ensure that ethnic minority pupils continue to participate fully at school, and what plans does she have to prevent religious intolerance?
Mrs Emma Lewell-Buck (South Shields) (Lab)
The Government’s own findings show that the 26-week timescale that is applied in care proceedings is leading to rushed and unsuitable placements for children under special guardianship orders. In the light of that, will the Minister accept what the social work profession has known all along: that 26 weeks is not sufficient to plan properly for a vulnerable child’s life?
Edward Timpson
From memory, the hon. Lady was on the Children and Families Public Bill Committee, so she will know that when we brought in the 26-week timescale for care cases, the average length was over 55 weeks. In anyone’s view, that is well over what it should be for a decision about a child’s long-term future. We have managed to bring the average down to close to 26 weeks. In relation to special guardianship orders, we need to ensure that the assessment of the potential carers for those children is as robust as it is in respect of any other decision about a child’s long-term permanence. There is a concern that, in too many cases, that is not happening.
James Morris (Halesowen and Rowley Regis) (Con)
Many headteachers in my constituency are reporting an increased prevalence of mental health problems among young people in schools. Does the Secretary of State agree that we need better integration between schools and child and adolescent mental health services to deal with that growing problem?
Forced Adoptions
Edward Timpson Excerpts(8 years, 5 months ago)
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The Minister for Children and Families (Edward Timpson)
As ever, it is a pleasure to serve under your chairmanship, Mr Bailey. I congratulate the hon. Member for Clacton (Mr Carswell) on securing this debate. I recall all too vividly our early comradeship on the then Children, Schools and Families Select Committee between 2008 and 2010. Our paths have gone in slightly different directions since then, but I have always looked on in admiration of his crusade to bring greater transparency to public life, and this is another area to which his attention has been drawn.
I thank my hon. Friend the Member for Telford (Lucy Allan) for her contribution. I know that she, too, will pursue the subject personally in the months and years ahead.
The debate gives me the opportunity to set out the Government’s position in an important and sensitive area for which I have had the privilege of being the Minister responsible for the past three and a half years. The first principle on which the system of family justice in England is rightly based is that children live with their family wherever possible.
When concerns about a child are raised with a local authority, the law under the Children Act 1989 is clear about looking at what support or help a family might need to enable the child to remain with the family. Achieving that objective includes work not only in the local authority, but with other agencies.
As hon. Members have recognised, however, where a child remains at risk of suffering “significant harm”—we could have a long debate about a definition—the local authority may apply to the courts to take a child into the care system as a looked-after child. Many tens of thousands of children are either a child in need or on a child protection plan and should be receiving support services from the local authority and others to ensure that they have every prospect of remaining with their family. The vast majority of such cases never get anywhere near a court.
When cases do go to court, parents should have legal representatives who are appointed to support them—for which legal aid rightly remains available—to ensure that their views are heard and that evidence presented by the local authority can be challenged. I spent many years doing that myself.
In addition, applications made to the court are subject to separate scrutiny by the child’s guardian, who must submit his or her own analysis of the evidence. On many occasions in my experience, a child’s guardian was the one who was able to give a robust challenge to the local authority’s case on behalf of the child. That is an important part of providing an independent view of the veracity of a case before any decision by the judge. The court’s paramount consideration is, of course, the welfare of the child, which is known as the paramountcy principle.
Where it is decided that it is not possible for children to remain with their parents, the law is clear that local authorities must consider placing a child with relatives—including grandparents, thousands of whom do an excellent job of supporting and bringing up their grandchildren —and friends before considering other permanency options. We have supported that approach through means such as the advancement of family group conferences, at which families are brought together at a much earlier point in their contact with local authority services, so that they may come up with a plan to keep the child in the family and to enable the family to have the support necessary for a sustainable situation. We have announced the extension of shared parental leave to grandparents, so they are in a better position to put themselves forward as potential carers.
In some cases, however, despite the best efforts of the family to provide an alternative, it is in the best interests of children to be placed in foster care or to be adopted. I know from my family’s experience about the huge difference that fostering and adoption can and does make to children who have had a difficult start in life.
The key is always what is in the best interest of the child. That is why we have not, as the hon. Member for Clacton suggested we have, set targets for the number of adoptions—there is no chasing of adoption targets, which simply do not exist. Every decision must take account of a child’s individual circumstances and need.
In discussing adoption, it is important to remember the context. Without giving too long a history lesson in the few minutes I have remaining, the Adoption of Children Act 1926 was the first time that adoption was made legal in this country, but that was after the United States of America, Canada, Australia and many other countries had already done so. In 1968, 25,000 children, a large number of whom were babies, were adopted under adoption orders. In 2014, about 5,000 children were adopted, of whom 230 were under the age of one, according to the latest figures. Therefore, only 16% of children leaving the care system were adopted, with the majority returning to their own families after a period in care.
That illustrates, first, that societal shift has meant a corresponding shift in the role of adoption and, secondly, that the outcome being pursued for children is not relentlessly that of adoption irrespective of what is in their best interest. Many children are now achieving permanence through many different routes, such as supervision orders, what used to be residence orders and are now child arrangements orders, or special guardianship orders, which I will come on to.
The Adoption and Children Act 2002 makes it clear that children cannot be adopted without the consent of their parents unless the courts are satisfied that the welfare of the child requires such consent to be dispensed with. The circumstances in which a court might take that view can be that it is satisfied that the parents cannot be found, that the parents are incapable of giving their consent, or that it has reason to believe that the welfare of the child or children requires parental consent to be dispensed with. That is a stiff and strict test, which Lady Hale reiterated in a recent judgment.
England is not alone in having an adoption system that includes adoption without parental consent; so, too, do Germany, Italy—in what is known as a special adoption—Sweden, Norway and 24 other European countries. The recent announcement by the Prime Minister was all about ensuring that where adoption is in the best interest of the child, there is an early placement for the child, to form the bonds that are so important as children grow up and as they are starting to be nurtured by their adoptive family.
Mr Carswell
If the system works as wonderfully as the Minister claims, how does he explain the Karrissa Cox case? Surely he accepts that, despite what officials tell him, it does not work as well in practice as in the theory in his Department.
Edward Timpson
As the hon. Gentleman understands, I am not in a position to comment on individual cases, but I was going to say—this was drawn out in the Re B-S judgment by the president of the family division—that there is still some inconsistency in the practice of social workers. Evidence submitted to the courts in support of such a draconian step—the severing of the legal tie between children and their birth parents—might not be of the quality and depth of analysis required for the judge to make such an important decision.
The president of the family division made that point throughout the judgment, so we need to concentrate on the quality of social work. The hon. Gentleman knows that we have a big reform programme under way to improve the knowledge and skills at the core of social work. We want judges to have clear opportunities to question the evidence supplied by social workers and to know that it is of sufficient quality to give them confidence about making a good decision.
On special guardianship orders, it is also important to look at the numbers and the rapid change in their role in permanence decisions on children in care. The hon. Gentleman suggested that we should encourage more special guardianship orders, but, as he knows, since their inception in 2005, we have in fact seen their use increase year on year. Since 2011, the number has in fact doubled.
Yes, the increase is a positive development, but it is also apparent that the changes in the use of special guardianship orders have led professionals and others—reflected in some research by Jim Wade—to be concerned that special guardians are not always being assessed or supported appropriately or consistently. Some children are being placed with family members with whom they have no relationship or, in some cases, whom they have never met. We have seen a substantial rise in the number of babies under the age of one leaving care under an SGO from 130 in 2010-11 to 620 in 2014-15. Such a position was not envisaged at the inception and crafting of the special guardianship orders, which is why we are reviewing whether the assessment—important for a child placed under an SGO—is of the veracity that it needs to be and whether support is available should a child be placed in such a placement.
I only have 40 seconds left to refer to the hon. Gentleman’s points about the lack of openness of the courts. It was helpful to hear him recognise the fine balance to strike in such matters. The media have been allowed access to most family court hearings since 2009. The need for openness in the family courts, however, has to be balanced against the need to protect the privacy of the child. We know that children are concerned about the details of their case being made public, which is why the judge has the power to order reporting restrictions if deemed necessary to safeguard the identity of the child. Going beyond that requires careful consideration.
As the hon. Gentleman knows, the president of the family division is consulting on the matter, and we look forward to his response, so that we may see what more we can do to ensure confidence in the family justice system.
Motion lapsed (Standing Order No. 10(6)).
Children of Alcoholics
Edward Timpson Excerpts(8 years, 5 months ago)
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The Minister for Children and Families (Edward Timpson)
As ever, it is a pleasure to serve under your chairmanship, Mr Hollobone.
I congratulate the right hon. Member for Birmingham, Hodge Hill (Liam Byrne) on securing this important debate, and even more on the manner in which he introduced it and his courage in speaking out about his experience with his own family. It is a testament to him that his determination to give a voice to the many thousands of children who find themselves in a similar predicament has led to today’s debate—and, I am sure, to many conversations in the coming weeks and months. I read about his dad, Dermot, this morning. I listened to the right hon. Gentleman talking about his dad’s life and how he inspired him to enter the world of politics and make the world a better place. I also heard about the ongoing anguish that his father’s battle with alcoholism caused him, which will inevitably still affect him today. But there is no shame in that whatever—absolutely none.
I am really pleased that the right hon. Gentleman made the decision to speak up today and put on the record his desire to ensure that, from here on in, those children out there will feel more able to deal with the consequences of living in such a family environment. Even more important is his desire to prevent the problem from even happening in the first place. To that end, I look forward to working with him and the organisations that have helped him to prepare for this debate, so that we can take stock of both the progress that has been made and where there are shortcomings and a lack of understanding. There is sometimes a lack of encouragement to those out there who still feel very much unable to let others know of the suffering that they are having to deal with day after day.
Mr Gavin Shuker (Luton South) (Lab/Co-op)
I salute the bravery of my right hon. Friend the Member for Birmingham, Hodge Hill (Liam Byrne) in introducing this debate. On the Minister’s point, will he ensure that all educational professionals have the appropriate training for when a child might disclose something to them? Many alcoholic parents are very concerned about losing their children, so will seek to involve them in the secret to try to prevent their child from being taken into care. The Minister is from the Department for Education, so will he look at whether all educational professionals are suitably trained for disclosure?
Edward Timpson
That is hugely important. It is not a surprise to me that one of the top three points that the right hon. Member for Birmingham, Hodge Hill wanted me to address was the fact that it is the professionals who interact with children daily who are best placed to try to spot the signs and act on them sooner rather than later. In that way, children who have nowhere else to turn will receive timely and sympathetic support, backed by the knowledge of that professional about what works and how they can help the child and their family to turn the corner—knowledge that has so often been lacking in the past.
I am conscious that I have only five minutes in which to address all the right hon. Gentleman’s extremely well-made points. We must base any response on the premise that every child has a right to grow up in a safe and secure environment. Parents play a crucial role in how their children develop and behave. Of course, parents should act as role models for their children, but we recognise that parental alcohol dependency is a disease that affects many parents. It can limit their parenting capacity, which can have serious consequences for their children.
Rather than read out the response that a Government Minister might normally give to this sort of debate, I shall discuss how my own experience reflects what the right hon. Gentleman said and why I, too, am determined to join him in trying to do more and to do right by the children who still have to live in such circumstances.
I grew up in a family who fostered many children, of whom a large proportion, including one of my adopted brothers, came from a home in which alcohol misuse had been a regular feature. We cannot underestimate the lifelong impact on such a child, who, whether for a short time or a much longer period of their childhood, has been trapped in a cycle. They learn behaviour that they find difficult to avoid later in life, which creates that cycle between generations, and they often witness violence and conflict and feel a sense of isolation. To try to unravel all that is a huge task for anyone. If we superimpose on to that the scale of the problem, irrespective of the progress that has been made on the public health agenda and reducing alcohol dependency, we will see that huge problems further down the line are being stored up for future generations.
In both the private and public cases I dealt with in the family courts, alcohol was often a feature; as the right hon. Member for Don Valley (Caroline Flint) rightly said, it was sometimes a feature in families of whom the overriding public impression was that alcohol would not be at the heart of their problems. On the surface, these are functional families, but underneath there are serious issues that need to be addressed. To that end, notwithstanding that this is a complex issue that transcends the work of many Departments, the Government have a role, because there is commonality: a shared ambition to ensure that no child should be left behind in our determined efforts to try to tackle the problem.
I will look very carefully at the 10 points raised by the right hon. Member for Birmingham, Hodge Hill and undertake to talk to ministerial colleagues, particularly in the Department of Health, about how we raise public awareness of parental alcohol dependency in a similar way to how we have raised awareness on smoking. I am happy to meet the right hon. Gentleman, along with representatives from many of the excellent organisations that have come together to help him in both a personal and professional capacity to prepare for this debate, so that we can pull together our collective understanding of what is being done and where we continue to fall short.
Much of the work that we are doing on the social work reform agenda, and on how we equip teachers and other educational staff to understand the presentation of children from a family in which alcoholism is a problem, is going to be key to unlocking this taboo that sometimes remains. If we are honest, we all know of someone in our own family or immediate circle of friends, or certainly in our social network, for whom this is a feature in their lives.
We should not pretend that there is an easy way of trying to make changes happen, but, on the back of the right hon. Gentleman’s public push to galvanise the work already being done in many places around the country, we have a real opportunity to ensure that responses are more consistent and that we start to reduce some of the anomalies we see in different local authorities. As my hon. Friend the Member for Central Suffolk and North Ipswich (Dr Poulter) said, there should be a much more joined up approach so that families who feel unsupported and children who feel lonely no longer have that as a central feature of their lives. We must use some of the innovation out there to ensure that the work we do in future really does make a difference.
Question put and agreed to.
Resolved,
That this House has considered support for children of alcoholics.
Oral Answers to Questions
Edward Timpson Excerpts(8 years, 6 months ago)
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Mark Spencer (Sherwood) (Con)
1. What support her Department offers to kinship carers.
The Minister for Children and Families (Edward Timpson)
Let me begin by welcoming the new shadow Front-Bench team to their respective roles, and in particular the hon. Member for Washington and Sunderland West (Mrs Hodgson), whom I look forward to working with on the whole of my portfolio, as we did on special educational needs in the past. I am sure she, along with the rest of the House, would agree that kinship carers play a pivotal role in caring for many children who cannot live with their parents. That is why during the previous Parliament we issued family and friends care statutory guidance for local authorities, which makes it 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. Some 83% of English local authorities now have a published policy, compared with 42% in 2012, and I intend to write again to councils on this issue.
Mark Spencer
I know the Minister will recognise the important role that kinship carers are taking, many of whom are the grandparents of those for whom they have responsibility. Their caring responsibilities prevent them from working full-time. What assistance can my hon. Friend give to grandparents who happen to be kinship carers to support them further in their caring duties?
Edward Timpson
My hon. Friend is right to raise the important and often crucial role that working grandparents play in proving childcare and supporting working families. As a Government we recognise that fact. 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 this change with the aim of implementing it by 2018.
Bill Esterson (Sefton Central) (Lab)
Carers save the taxpayer a great deal of money, as well as often being the best option for the children they are looking after, so in addition to the publication by local authorities of their practice, will the Minister ensure that those local authorities have the resources they need to support kinship carers, both to save the taxpayer money and to do what is right for the carers and the children in the short as well as longer term?
Edward Timpson
We have taken such a strong interest in these issues for all the reasons that the hon. Gentleman set out, because kinship carers are performing a role that would otherwise have to be performed by the state. That is why, whether through the discretionary housing fund or through the work that we are doing with the Family Rights Group and others to encourage family group conferences, we are trying to help those families where at all possible to keep children living with them, thereby helping to save not only taxpayers’ money, but those children’s futures.
Mr David Burrowes (Enfield, Southgate) (Con)
Given the significant financial pressure from placement breakdown on the formal fostering system, will the Minister support a kinship reform grant, similar to the adoption reform grant, which has a significant impact, to show that the Government are matching the intent with the money to support kinship care?
Edward Timpson
My hon. Friend will be aware of the already impressive impact the adoption support fund has had on helping families trying to care for some of the most vulnerable children in our society. It is clear that such a positive approach across the board will help many other families struggling in similar circumstances to bring about those excellent outcomes. The special guardianship review, which is under way, and the improvements to social work reform will help to deliver better pre- and post-placement support for all those children who need it.
Rachael Maskell (York Central) (Lab/Co-op)
At my last surgery I had two families who were taking on kinship responsibilities. They have less ongoing support than adoptive parents. Will the Government ensure that they get support equal to that which adoptive parents receive?
Edward Timpson
In the previous answer, on the support that we have offered on adoption, I touched on some of the other support that is available to kinship carers in their own local authority area. That is why through Ofsted inspections of local authorities and through the family and friends statutory guidance we have made sure that there is a greater emphasis on the support that we know works for kinship carers. More importantly, the announcement on shared parental leave will help many of those families who have a grandparent who works and who is helping with childcare, by providing the flexibility they need to have a much better balance between having a family and having good childcare in place.
Andrew Gwynne (Denton and Reddish) (Lab)
I was privileged to meet a group of kinship carers, along with the Family Rights Group, in Parliament a couple of weeks ago. They told me that the Government’s changes to welfare might have an unintended consequence by deterring people from taking up kinship care, because many look after more than three children. What assessment has the Minister made of the likely impact of changes to tax credits on this group of people, who are doing such fantastic work?
Edward Timpson
The hon. Gentleman is right to highlight the importance of ensuring that we have the right support in place for kinship carers and that any changes are thought through carefully, and that is exactly what we have done. He will know that the two-child policy is not being introduced until April 2017, and that any extra support that kinship carers receive from their local authority is disregarded when it comes to the benefit cap. Extra support is available in exceptional circumstances to protect kinship carers from those changes from April 2017. All these things have been thought through, but of course we are happy to consider them as they are implemented.
Michael Fabricant (Lichfield) (Con)
2. What steps her Department is taking to ensure a more equitable allocation of funding per pupil throughout England; and if she will make a statement.
Maria Caulfield (Lewes) (Con)
8. What steps she is taking to ensure that safeguarding policies are in schools.
The Minister for Children and Families (Edward Timpson)
When carrying out their duties to safeguard and promote the welfare of children, schools must have regard to the statutory guidance we have issued, “Keeping children safe in education”, which includes ensuring an effective child protection policy, together with appropriate safeguarding responses to children going missing from education and procedures for handling allegations of peer-to-peer abuse.
Maria Caulfield
Further to that reply, can the Minister highlight what support is available to help parents, school governors and teachers who may have concerns about local issues to report those concerns?
Edward Timpson
Where there is a specific safeguarding incident that either a governor or parent wants to raise, they should contact their local authority’s children’s services safeguarding team; where there are concerns about safeguarding processes at a school, they should be raised through the school complaints process; and if the safeguarding processes at the local authority are causing concern, they should be raised with Ofsted. In law, it is the local safeguarding children’s board that is responsible for developing and scrutinising local procedures and arrangements, but I am sure my hon. Friend will also know that the National Society for the Prevention of Cruelty to Children has an excellent helpline to enable parents who have concerns about safeguarding in their school to raise them directly.
Ann Coffey (Stockport) (Lab)
Ofsted recently praised Stockport academy for its outstanding work to keep pupils safe. The school uses a software application into which staff input any concern they have about a child, including if they are missing from a lesson. That means that immediate checks can be made to ensure that the child is in a safe place. Does the Minister agree that that approach to safeguarding, using modern technology, should be used by more schools?
Edward Timpson
I know how assiduous the hon. Lady has been in pursuing these matters, and it is good to hear of that initiative in her constituency from Stockport academy. I would like to learn more—as, I am sure, would the Department—about how it has achieved that, so that that best practice might be spread more widely. I am happy to discuss that with her further.
Diana Johnson (Kingston upon Hull North) (Lab)
Many parents will be surprised to know that under the previous Government a requirement for volunteers in schools to undergo a Criminal Records Bureau check was removed. Is the Minister planning to review that change in the law?
Edward Timpson
There are no current decisions to be made about whether to review that particular measure. As the hon. Lady knows, there were some widespread changes made during the last Parliament—they were predominantly led by the Home Office, but the Department for Education was kept closely involved. We feel that we have a robust system in place, but more important is making sure that the people who are delivering the services have the best practice, skills and knowledge at their disposal, because where things go wrong, it tends to be through basic practice failures, rather than systems.
Bob Blackman (Harrow East) (Con)
9. What discussions she has had with the Chancellor of the Exchequer on the VAT treatment of sixth-form colleges.
Child Food Poverty
Edward Timpson Excerpts(8 years, 6 months ago)
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The Minister for Children and Families (Edward Timpson)
I congratulate the hon. Member for Stoke-on-Trent North (Ruth Smeeth) and Kidsgrove on securing this debate. We have not met, but we are quite close neighbours and it is good to have another representative from our area speaking so passionately about an extremely important subject, which she rightly emphasised should exercise all our minds. We should be working as closely together as we possibly can to come up with the right solutions to all the problems society can throw at us, such as those she raises in this debate.
I think we can all agree that no child should go hungry. Like the hon. Lady, I have seen, both in my personal and professional life before politics, what can happen to children when that takes place, so I am in no doubt about the need for good nutrition and the vital role it plays in children’s development and health.
The Government want to give every child, regardless of background, the very best start in life. That approach is at the heart of our reforms to school meals. We have made real progress towards ensuring that all children are eating good, healthy food, which in turn will help them to concentrate in the classroom and support the healthy lifestyle we want to see.
The hon. Lady rightly pointed out that there is some developing research in this area, but considering how long this has been discussed—over many decades—there is still a paucity of research and that will need to be addressed so we can better understand the potential links between nutrition and educational attainment. I want to start by setting out the work being done by my Department to tackle this issue and we will then talk a little more widely about Government action in this area.
We published the school food plan, developed by independent food experts drawing on the views of teachers, cooks, caterers, nutritionists, parents, charities and volunteers. This has led to a practical action plan that is increasing the quality and take-up of school meals—which has been a long-standing problem—developing a whole-school food culture and exciting children about good food and cooking so that they can lead healthy lives.
As part of that plan, we have revised the school food standards so that they are easier for schools to understand and implement. They allow school cooks more creative freedom to adapt to the preferences of the children at their school, source seasonal or local food, take advantage of price fluctuations, or create dishes that suit their particular talents. Importantly, parents will more easily be able to know if the food served to their children meets the standards. Most crucially, they restrict unhealthy foods to ensure our children eat well.
I took the time to read the Kellogg’s report and it was interesting. One point it made is that although more money is being spent on food, the nutritional value is going down by virtue of the poor choices being made by parents for their children. We also need to tackle that, so children are eating nutritious meals.
Catherine West (Hornsey and Wood Green) (Lab)
I thank the Minister for giving way; that is a convention not always observed in these debates. What is his view on the growing numbers of machines selling junk food? The name escapes me—
Catherine West
Thank you. The number of vending machines in schools and hospitals seems to be growing. What is the Minister’s view on that?
Edward Timpson
We have set out in the school food plan a clear objective to make as much home-grown nutritious food available to children as possible. I am not going to gainsay the position of other Ministers in the Department of Health and elsewhere who have responsibility for these areas, but we need to look carefully at the proliferation of vending machines to ensure that there is no exploitation going on and that they are not undermining the overall principle that we have set out in the school food plan and the school food standards.
We have also reformed the national curriculum to include new content on food, nutrition and healthy eating and on how to cook a whole repertoire of dishes. For the first time, learning about food is statutory for every pupil up to the age of 14. The school fruit and vegetable scheme provides a daily piece of fruit or a vegetable on school days to key stage 1 children—typically aged four to six—in primary schools and nurseries attached to eligible primary schools in England. We have also extended the right to free meals during term time to include disadvantaged students in further education as well as children from low income families in schools.
More widely, our ambition for disadvantaged pupils to be successful during their school years and to achieve the highest possible levels of educational attainment is at the centre of our education reform programme. That is why we are committed to raising the bar among disadvantaged pupils as part of pushing up standards for everyone, so that no pupil is left behind. This is built on the knowledge of how important educational attainment is for improving their life chances.
The Wolf report, which was commissioned by the last Government, showed that English and maths skills were vital for labour market entry and continued to have a significant impact on career progression and pay. That is why we are committed to ensuring that more poor pupils achieve excellent grades at GCSE, attend the very best universities or go on to an apprenticeship that will lead to their gaining skilled employment, so that every child, regardless of their background, has an education that allows them to realise their full potential. Our reforms are working. More young people have got into work in the last year in this country than in the rest of the EU put together, and there are more than 1 million more pupils in England in good or outstanding schools than there were in 2010, with the attainment gap narrowing in the process.
As I said earlier, it is not just the Department for Education that has a vested interest in ensuring that all children, irrespective of their background, are protected from or lifted out of a childhood spent in poverty, including food poverty. That is why this Government want to work to eliminate child poverty, as did the last Labour Government, and to improve the life chances of every child. Our new approach, set out in the Welfare Reform and Work Bill, will incentivise the Government to focus on tackling the root causes of child poverty, not just the symptoms. Our new statutory life chances measures will drive continued clear action on work and education. This will make the biggest difference to disadvantaged children, now and in the future.
In reaching for that goal, we know that work is the best route out of poverty. Research shows us that around 75% of poor children living in families where both parents move into full employment leave poverty altogether. Economic growth and employment offer the best route to giving people a better future and to reducing poverty. As we have seen in the past year, we now have the fastest growth of any major advanced economy.
Ruth Smeeth
Thank you very much for giving way, Minister. I am grateful for your time and your commitment to this issue, now and previously. One of my concerns is that you have not talked about what happens during the school holidays. The Kellogg’s report is obviously incredibly important, but this is about the impact of malnutrition during the school holidays on children’s attainment when they come back to school. I agree with you that, traditionally, employment would be—
Ruth Smeeth
I apologise. I am still claiming new status.
Will the Minister please give us some clarification on what action we can now take to draw a line in the sand and work together to tackle the specific issue of holiday hunger?
Edward Timpson
The hon. Lady is right to challenge me to move on to that aspect of this debate, and I intend to do so, once I have set out the underlying principles that the Government have in order to tackle poverty at its source by bearing down on its root causes. They help us to start to pull together exactly how we should respond to any of the issues she has raised on what happens in the school holidays for some children.
Employment is up by more than 2 million since the 2010 election, and the number of children growing up in workless households is at a record low—it has decreased by 480,000 since 2010. Household incomes will be higher in 2015 than in 2010. In the summer Budget, the Government announced that a new national living wage of £7.20 an hour will be introduced, giving full-time low-paid workers an extra £20 a week when it is introduced in April. The hon. Lady rightly reminds us, however, that times are still tough for many families, and it would be wrong to deny that some deep-rooted problems leading to children being in food poverty need to be tackled. As the all-party group on hunger and food poverty has found, the reasons behind demands for emergency food assistance are complex and frequently overlapping. We need to understand better how we start to unravel that, so we can address it in the best way possible. The work of civil society and faith groups to support vulnerable people has been immensely impressive, and I would like to take this opportunity to recognise the valuable contribution of all those involved.
Perhaps the greatest frustration for all of us is that as a country we have enough food to feed us all—there is enough food to go around—and so it is wrong that anyone should go hungry at the same time as surplus food is going to waste. Food waste must be tackled—that has to be part of the solution—and surplus food must be redistributed. That is why the Government have taken action to ensure that more surplus food is redistributed to people before being put to any other use. The Waste and Resources Action Programme has published research, guiding principles and good practice case studies to help industry take action. Building further on that work, the Secretary of State for Environment, Food and Rural Affairs and the Minister for Civil Society have brought together key players from retail, food manufacturing and redistribution organisations to agree new actions to further increase levels of food redistribution, so that people who need it can access it. A working group is driving that forward—to waste less and redistribute more.
Edward Timpson
I am sorry, but I am short of time and I have to keep going.
We are also taking action to help families with their food costs specifically, for example, through the Department of Health’s Healthy Start scheme, which provides nutritional support for pregnant women, new mothers and low income families throughout the UK. Healthy Start is helping half a million families buy milk, fruit and fresh and frozen vegetables. The hon. Lady also highlighted a number of other schemes going on up and down the country, and I have taken time to look at those. The National Housing Consortium, in particular, has been helping lead many of those initiatives. I welcome that work that is going on, and I would be happy to ensure that the Minister responsible has a chance to consider them as well, together with the other requests that the hon. Lady made towards the end of her speech, so that we can see this as a joint venture to tackle what we know to be a real part of pervading societal problems for far too long. Although I believe the work the Government are doing to tackle the root causes of poverty will help alleviate many of those issues, we still need to look carefully at how it affects different communities in different parts of the country, so that we can be more creative and innovative about how we respond to it, so that as few children as possible ever find themselves in that position in the future —we hope none will.
The Government have put in place a long-term plan for economic growth, to raise living standards for all, and that plan is working; we were the fastest-growing major advanced economy in 2014, wages are rising at the fastest rate in a decade, employment has risen by 2 million since 2010 and the number of children in workless families has fallen to a record low.
In schools, we have introduced measures that will ensure that children are offered more nutritious and appetising meals, which will improve their health and development. We know that we have 1 million more children being taught in good and outstanding schools, and we have raised the bar for achieving for all children no matter what their background, so that their performance will match and exceed that of their peers in the highest-performing countries across the world, giving them the best possible chance of securing rewarding further education and employment.
We should never dilute our determination to tackle child poverty in all its forms. I have set out a range of actions in this short debate. The Government are taking action to reduce poverty and to give children, wherever they live, a better and healthier future. As we see changes in our society, we need to ensure that we do not shy away from problems, complex as some of them may be, and that we are open about them. As someone who has seen what happens when things go horribly wrong and children have ended up in need, I am as determined as the hon. Lady to ensure that we as politicians lead on this issue and that many more children do not suffer the consequences of our doing nothing.
Question put and agreed to.
Education and Adoption Bill
Edward Timpson Excerpts(8 years, 7 months ago)
Commons ChamberRead Full debate Read Hansard Text Read Debate Ministerial Extracts
Steve McCabe
The Department published a report in August entitled “Impact of the Family Justice Reforms on Front-line Practice Phase Two: Special Guardianship Orders”. I also believe the Minister is planning a more extensive review of SGOs.
Steve McCabe
There are two issues: first, there might be evidence that some local authorities are favouring SGOs in circumstances where they were not originally intended; and secondly, there are financial concerns, particularly for grandparents with SGOs. Local authorities have discretionary powers to provide financial support, but it is inevitably means-tested, meaning that some grandparents, having been persuaded by local authorities, sometimes on the basis of limited information, that SGOs are the best route to go down, and thinking they are doing the right thing by the child or children, could find themselves in dire financial circumstances, with the local authority all too happy to wash its hands of it all. As I said, a report in the summer was illuminating on this subject, and I believe the Minister is planning a further review. I hope he will say a bit more about this problem before the end of the day.
Edward Timpson
I am grateful to the hon. Members for Birmingham, Selly Oak (Steve McCabe) and for Cardiff West (Kevin Brennan) for tabling their amendment, and for the other informative and constructive contributions from other hon. Members across the House. The amendment raises the important issue of ensuring that the power given to the Secretary of State in clause 13 is used in a transparent way and takes into account the impact of any action on voluntary adoption agencies, other models of care and the provision of post-adoption support by requiring an annual report to be laid before Parliament. I am pleased that the Secretary of State is in the Chamber to hear the views being expressed on this aspect of the Bill.
It is important to state at the outset that I appreciate the intentions behind the amendment. I agree that we need to be clear about how the power is used and the impact that it has. I can assure hon. Members that the process will be open and fair and that decisions will be transparent. I see that as the main thrust of the amendment, which hon. Members have drawn out during the debate. Be that as it may, the laying of an annual report before Parliament on the use of this power would, in our view, be disproportionate, and I shall explain why we take that view.
Mr Burrowes
I should like to take this opportunity to congratulate the Minister on leading the charge towards increasing the number of children who have permanent homes. The record increase in the past year provides the best evidence that we are a party and a Government that support families. In regard to the move towards regional adoption agencies, can he assure me that there will not be a one-size-fits-all approach, and that there will be flexibility in the system? For example, in the borough of Enfield, will there be a cross-over into Hertfordshire as well as into the London boroughs? We need to achieve the necessary efficiencies, but we must also act in the best interests of the children.
Edward Timpson
I am grateful to my hon. Friend for his support, not only for the Bill but for the work that we have been doing in government to improve the adoption system. I can assure him that we will go on to talk about those matters in more detail. This is very much a bottom-up approach to the development of regional adoption agencies. It has purposely been designed to ensure that it has the flexibility that he mentioned, so that local authorities across regions, working closely with voluntary adoption agencies, can come up with the solutions that work best in their areas, based on their collective expertise. Even in the early stages of the process, that is already happening.
Before I set out the reasons why we do not accept the amendment, I want to address the specific issues that have been raised in the debate. At the heart of this has been the way in which adoption fits into the wider routes to permanence for children in the care system. Reforming the adoption system is a key Government priority, but adoption is clearly a solution for only a small group of children who cannot be looked after by their own parents, as the hon. Member for Sefton Central (Bill Esterson) reminded us. That is why, in parallel to improving the adoption system, we have taken—and are determined to continue to take—action in relation to other placement types as well.
The reason that the measures in the Bill refer only to adoption is that the adoption system operates on such a geographical scale that the kind of rationalisation envisaged here makes sense. However, if local authorities want to bring together other permanent services voluntarily, they have the freedom to do so. We are also taking action to improve the outcomes of children who have already left the care system. In the last Parliament, we took many steps to improve the support for children in care, including providing funding of nearly £100 million through the pupil premium plus, allowing targeted individual support to be provided for children in care in schools, introducing a new duty on local authorities to appoint a virtual school head, strengthening quality standards in residential settings to make them safer places for children and young people, and launching a cross-Government strategy for care leavers in 2013.
Bill Esterson
The Minister mentioned the pupil premium plus. I commend him for that, because it has been a very successful initiative in schools, providing support for individual children in care and for former children in care—so adopted children qualify, too. To come back to the point I was making, the problem has been that we do not have the mental health professionals and qualified child psychologists to do the work that is needed in the timely fashion or to the level that is needed—that goes back to the point made by the hon. Member for Stevenage (Stephen McPartland). That is why we need to recruit and train the qualified professionals in those sectors, so that we can make the most of that investment.
Edward Timpson
The hon. Gentleman makes a fair observation, and I will come on to talk a little more about the need to improve mental health services. The Prime Minister was clear that that was a key Government programme of work that will be taken on over the next five years. To ensure that children are receiving the right type of support when they need it, we need good decision making, good planning for them and an integration of those services around them—that is one of the roles the virtual school head has. This is also why we have embarked on an ambitious programme of reform to social work, making sure that those involved have the key knowledge, skills and practice-based learning to ensure that they are making the good decisions that lead to better placements and better outcomes.
To improve practice where the best permanence option is to remain as a looked-after child, we have also amended regulations in April to introduce long-term foster care as a distinct placement type for the first time. As someone who comes from a family who fostered both short term and long term, I think this is a very welcome step, which gives children who find themselves often for a large part of their childhood in the same placement a sense of family and stability. Together, we have made revisions to the wider statutory framework to ensure that those decisions are made very much in the best interests of those children. I could say much more if more time were available, but a lot of work has been done and will continue to be done in government to ensure that whatever the right permanency placement is for a child from the care system, we have the best system, the best people and the best accountability in place, so that they have the best possible start in life.
The issue of the crossover of adoption into special guardianship orders was raised by the hon. Member for Birmingham, Northfield (Richard Burden). He highlighted a case from his constituency, which he has previously raised with me. It is right to say , in response to the hon. Member for Birmingham, Selly Oak, that we have launched a public review of the legislative and practice framework underpinning special guardianships. It is now a decade since they were introduced by the last Labour Government, and it is time for us to have a close and proper look at the consequences of their introduction. For instance, we have seen a sharp increase, of 64%, in the use of SGOs for children under the age of one, which is not what was originally intended or envisaged when the legislation was introduced. We have also seen, through the court judgments of Re B and Re B-S, SGOs often now being regarded as a default option when considering a child’s long-term future. We also have a disparity in respect of the level of assessment that there is of the potential placement for a child in a special guardianship placement, as opposed to adoption. This review is up and running, and is currently out for consultation. The hon. Member for Birmingham, Northfield may wish to know that he has until this Friday to make any comments to that consultation. We will be working carefully with the expert group that we have set up to make sure that, whether in relation to the decision around an SGO or the subsequent support, we make improvements from where we first started.
Richard Burden
Will the Minister ensure that he discusses this matter with his colleagues in the Department for Work and Pensions, particularly in respect of child maintenance? He will know that the case I raised with him involved two grandparents who ended up getting an SGO but then split up. The grandparent who left ended up with no maintenance responsibility for the child, which he would have had if this had been an adoption. There are arguments on both sides there, but this needs to be sorted out, because the reality in that case is that one grandparent is left with a child with very few means of support. That is clearly something that needs to be sorted out.
Edward Timpson
We are engaging Government Departments right across Whitehall to ensure that the implications of SGOs are being properly considered. In the scenario that has just been set out, we will need to consider whether we understand fully the consequences of these types of orders being made, and I will ensure that that is communicated to the relevant Minister in the Department for Work and Pensions and that it is looked at by officials in both Departments as part of the review.
Edward Timpson
Very briefly, because I wish to move on to the main thrust of my response.
Bill Esterson
I am grateful to the Minister for giving way. One of the issues that I have raised is the evidence of the prevalence of foetal alcohol spectrum disorders and the very high numbers of looked-after children and adopted children who appear to have that condition. Will he ensure that awareness and support for those caring for those children is part of what he has been talking about?
Edward Timpson
An essential element of all of this work is that anyone who takes on a child who has had trauma in their early life understands what it is. I am talking about not just its presentation but its causes. As part of that, we need to look at foetal alcohol syndrome, and I commend the hon. Gentleman for the work that he and his new all-party group are doing to raise awareness of that issue. I am happy to engage with him on that matter as I indicated in Committee.
As I set out in Committee, the current adoption system is highly fragmented, with around 180 agencies recruiting and matching adopters for only 5,000 children per year. We do not believe that such a localised system can give the best service for some of our most vulnerable children. As well as being inefficient in scale, it also too often leads to ineffective practice across the system. The introduction of regional adoption agencies will help to address those issues in several ways.
The first way is through matching. It still takes an average of eight months between placement order and match. We know that delays are often caused by an unwillingness to seek a family outside a local authority’s own group of approved adopters. That is simply not good enough. No child should suffer the lasting harm that we know delays cause because the local authority refuses to look elsewhere for a match. That is why we are making £30 million available to pay the inter-agency fee over 12 months for particular groups of children. That will help to ensure that they are matched quickly in the short term while regional adoption agencies improve things in the long term. Successful matching relies on being able to access a wide range of potential adopters from the very beginning, and regionalising adoption would give adoption workers that choice.
The second way is through recruitment. Although we have adopters approved and waiting to be matched, we have too few who are willing and able to adopt harder to place children, which means certain groups of children wait significantly longer than others to find adoptive families. For example, as at 31 March 2014, disabled children were waiting 7.6 months longer than the average child. The current system is not serving those children well enough, and we cannot just accept that as it is. Regional adoption agencies would be able to take account of the needs of a larger number of children when planning a regional recruitment strategy. Recruitment could therefore be better targeted, leading to the right adopters being approved and fewer children having to wait.
The third way is through adoption support. In too many cases the specialist support that many adopted children so desperately need, including mental health services, has simply not been available. In many areas, the number of adopted children is so small that local authorities are unable to ensure that the right provision is available. Regional adoption agencies will assess more children’s needs and give them a greater understanding of what should be commissioned. Commissioning at a regional scale will allow providers to expand their services, provide better value for money for the taxpayer and help ensure that all adoptive families receive a consistently high quality of assessment and provision. That will build on the adoption support fund that we have set up, which is now running, to the tune of £19.3 million. It is vital that adopted children receive the therapeutic and mental health services they need, which is why we have made that significant investment. Since May it has helped more than 1,400 families and spent £5 million, and all but 10 local authorities have already made a bid to the fund, which demonstrates how essential it is for those children.
I would like to set out what work has already been done to help achieve that regional approach. We want to support and work with local authorities and voluntary adoption agencies to help deliver regional adoption agencies. That is why we are providing £4.5 million of funding this year to support early adopters to accelerate their development and early implementation. I am pleased to tell the House that we have already received 30 expressions of interest for that support, covering every region of the country.
I would also like to assure hon. Members that through this process we are carefully considering the impact that moving to regional adoption agencies will have on voluntary adoption agencies, other models of care and the provision of support, which the hon. Member for Birmingham, Selly Oak rightly raised in his contribution. It is worth noting that voluntary adoption agencies are formally or informally involved with consortia across all regions already. We have been very clear that proposals need to look at how links with other children’s services can be maintained and how support functions will be carried out.
We have also been clear that voluntary adoption agencies have an important role to play. In our paper “Regionalising Adoption” we set out that we are particularly keen to consider models that bring together the best of the voluntary and statutory sectors. Proposals for regional adoption agencies that include voluntary adoption agencies will be looked on favourably, even for those that do not see partnership with local authorities as an option for them. The service they provide in recruiting adopters, particularly for some of the most vulnerable and complex children, will still be much needed by the new regional adoption agencies. That is built on our knowledge of the enormous expertise, service quality and excellent outcomes that voluntary adoption agencies have a record of delivering, as well as our desire and determination to ensure that the move to regional adoption agencies does not adversely impact on them. We will continue to monitor that closely as regional adoption agencies take shape.
Our intention is that, as far as possible, the sector will move to regional adoption agencies by itself. As I said in Committee, this power is simply a backstop measure for those agencies that do not rise to the challenge, as well as allowing the Secretary of State to direct local authorities to have a particular function carried out on their behalf by a voluntary adoption agency if an individual council or regional adoption agency is not doing so effectively.
We are confident that the majority of local authorities will seize this opportunity to deliver their services in new and exciting ways. I am pleased to see how the sector has already responded to the move to regional adoption agencies. The Association of Directors of Children’s Services sees this as a sensible development and Carol Homden, chief executive of Coram, stated in her oral evidence that the Bill will help children regarded as harder to place. The move to regional adoption agencies involves real potential to improve the life chances of some of our most vulnerable children, and I believe the majority of those working in adoption will make this a reality.
As I set out earlier, we have already had 30 expressions of interest for the support available this year. It is hugely encouraging that these bids cover all regions and the majority of them involve a voluntary adoption agency. Each expression of interest is currently being fully assessed and funding decisions will be made by the end of the month. It is also important to note that prior to this programme, we had already seen the emergence of some new delivery models for adoption and some growth of consortia and regional collaboration. For example, Wokingham Borough Council, Bracknell Forest Council, West Berkshire Council and the Royal Borough of Windsor and Maidenhead have launched a combined adoption service, known as Adopt Berkshire.
This is a move that is already seen as beneficial and we will build on this impressive momentum. Therefore, as noted by Sir Martin Narey in his oral evidence, we expect to use this power rarely, if at all. I can reassure the hon. Member for Birmingham, Selly Oak that if the power is required, the decision to use it will be made following extensive and detailed discussions with the agencies involved. These discussions will cover a range of areas, including the role of voluntary adoption agencies, the provision of support and the link with other care options. In addition, I listened carefully to the suggestions made by the hon. Gentleman in Committee, and before making any final decision we will write to any relevant local authority seeking its views and requesting supporting evidence. I can therefore reassure the House that all those involved will have a chance to comment on the proposal before a final decision is taken.
There is no requirement for the Secretary of State to lay an annual report before Parliament about directions issued to local authorities when the direction, as here, is to arrange for another body to exercise a wide range of functions on behalf of the local authority. As such, a more proportionate approach than laying an annual report before Parliament is to discuss directly the use of the power and its impact with those charged with delivering adoption services. We will work with both individual agencies and through the Adoption Leadership Board and regional adoption boards to ensure the effectiveness of this joined-up approach. As a consequence, I hope the hon. Member for Birmingham, Selly Oak will withdraw the amendment.
This has been a good and helpful debate which has drawn out some of the issues that surround adoption, not just what is in the Bill. I will endeavour, of course, to continue to work hard for all children in care, whatever their route to adult life happens to be. This is an important step in making sure that adoption and the adoption services function better, more quickly and in the best interests of every child for whom it is the right future.
Steve McCabe
I am sure we will return to many of these issues in the days and months ahead. For the time being, as a sign of my good faith, I beg to ask leave to withdraw the amendment.
Amendment, by leave, withdrawn.
Third Reading
Oral Answers to Questions
Edward Timpson Excerpts(8 years, 9 months ago)
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Mrs Flick Drummond (Portsmouth South) (Con)
5. If she will establish a framework to allow for alternative means of educational assessment for children with (a) special educational needs and (b) autism.
The Minister for Children and Families (Edward Timpson)
Many pupils with special educational needs, including autism, are currently assessed using P scales or national curriculum levels. We are changing statutory assessment to align it with the reformed national curriculum. That includes the removal of levels. We have announced an expert review of assessment for pupils who, for many reasons, are working below the standard of national curriculum tests. The review will advise on the best way to assess the attainment and progress of those pupils in future.
Mrs Drummond
Schools such as Milton Park primary, where I am a governor and which has autism provision, have to include those children’s results in national league tables. I am pleased that the Government’s focus is on progress, but the results of children with special educational needs often bring down the attainment grade, and that can lead to a belief that a school is coasting—or, worse, failing. Does the Minister agree that until a separate method of recording for children with special needs is implemented, some good schools that have a large proportion of children with special needs might be put into those categories?
Edward Timpson
It is of course important that schools be held to account for all their pupils, and although I concur wholeheartedly with my hon. Friend’s desire to see all pupils, including those with special educational needs, reach their full academic potential, we need to acknowledge that a separate system for pupils with SEN would be at odds with the principles of inclusion and would fail to recognise that those pupils span the full range of abilities. Those matters will be looked at closely in the coming months by the expert review panel—something that I know she will want to follow, so as to ensure that it incorporates her views.
Angela Crawley
The Minister will be aware that children with special educational needs have a range of needs. Will he detail his Department’s plans to ensure that sport is available to all pupils and, in particular, describe his plans to ensure that classroom assistants are available to support the needs of all children?
Edward Timpson
One of the core principles of our reforms to special educational needs is making sure that every aspect of the system, whether it be education, health or social care, is working relentlessly to a single assessment of and plan for the child, so that we have a whole-school and whole-system approach—and a nought-to-25 system as well. It will mean that we move away from different parts of a child’s educational experience being truncated and re-started as they move to the next part. We are working hard to make sure that support is consistent, and we are building on great programmes such as Achievement for All, in which we have had excellent results.
Steve McCabe (Birmingham, Selly Oak) (Lab)
I am sure the Minister will be aware of the impressive claims made about the benefits of applied behavioural analysis for the treatment of those with autism. Does he have any plans to support research into the efficacy of that therapy?
Edward Timpson
As the hon. Gentleman will know, we have supported research into and evidence on not only the condition of autism, but how it can best be supported in schools and more widely through a child’s education. We have funded the National Autistic Society to that end, and we will continue to look at ways in which we can support it and other organisations that are working hard in this area in the future. We know that specific types of interventions, some of which have come from overseas, need to be properly and rigorously assessed. As I understand it, the one he mentions may fall into that category, but of course I am happy to discuss it with him as we move forward.
Ms Tasmina Ahmed-Sheikh (Ochil and South Perthshire) (SNP)
6. Whether it is her Department’s policy to ensure gender balance on its departmental board.
David Rutley (Macclesfield) (Con)
11. What steps her Department is taking to support the mental wellbeing of children at school.
The Minister for Children and Families (Edward Timpson)
As my right hon. Friend the Secretary of State said in an interview with The Times earlier this month, we want children to do well academically, and their attainment is supported if they have good mental health, character and resilience—something that good schools know well. To support schools, we have funded PSHE Association guidance and lesson plans on mental health, and we have worked with experts to provide advice on good school-based counselling, together with £1.5 million to pilot training to improve joint working across schools and specialist mental health services.
David Rutley
It is worrying to hear more in recent months about young people’s concerns about mental health issues, particularly the growing pressure they feel as a result of social media. I welcome the Government’s “Future in mind” report and its conclusions, but what steps are the Government taking to clarify responsibilities across public services and give schools extra support to ensure that we improve mental health outcomes for young people?
Edward Timpson
I want first, as a fellow Cheshire Member of Parliament, to add my voice to those who have already expressed their deep shock at the devastating events in Bosley in my hon. Friend’s constituency of Macclesfield on Friday and over the weekend. I am sure that the whole House will want to join me in letting the families know that we are thinking of them.
Our joint working pilots will test single points of contact in child and adolescent mental health services to help schools understand mental health support. To clarify responsibilities, “Future in mind” recommended local transformation plans for every area. To that end, we have worked with NHS England on the guidance—it will go out shortly—which will require clinical commissioning groups to work with health and wellbeing boards, schools, colleges and local authorities to develop a clear and comprehensive offer of mental health support locally.
John Woodcock (Barrow and Furness) (Lab/Co-op)
It is good that the Government are putting forward such measures, but has the Minister seen the report out today suggesting that the No. 1 concern of headteachers is mental health? Has he seen how emergency psychiatric admissions have doubled in only four years? Does he accept that there is a mental health crisis in our schools, and will he resolve to do more if the measures that he has put forward are not effective in the coming months and years?
Edward Timpson
The hon. Gentleman is absolutely right to raise the profile of this issue. We have to come to terms with the scale of the problem we are facing. I think that we are starting to wake up to that, but more action is required. For example, for the first time we now have a category of mental health for children with special educational needs and disabilities, and the CAMHS taskforce has done a great job in trying to understand how we can get a better level of identification, prevention and whole-service delivery so that children of all ages who, through no fault of their own, suffer from different levels of mental health problems get support when they need it, because the last thing we want is for that to affect not only their education chances, but their chances of having a successful and fulfilling life.
Victoria Atkins (Louth and Horncastle) (Con)
14. What steps her Department is taking to ensure that all children can access a good, local school.
The Minister for Children and Families (Edward Timpson)
I commend the schools in my hon. Friend’s constituency, which provide some outstanding education for children with special educational needs. We brought about comprehensive reforms to the special educational needs system because the statementing process was not centred around the family, took too long and did not necessarily embed the quality of assessment that we need. We have moved to education, health and care plans—a single assessment involving education, health and social care services—so that the child and their family get a truly comprehensive support service to enable the child to achieve their academic potential.
Education and Adoption Bill (Third sitting)
Edward Timpson Excerpts(8 years, 10 months ago)
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Steve McCabe
It is a great pleasure to serve under your chairmanship, Mr Chope. I look forward, as I am sure we all do, to your firm but fair guidance in the course of the coming sittings.
The amendment is relatively simple. It challenges the Government intention to delegate substantial powers to the Minister to make changes in our adoption arrangements without any further reference to Parliament or scrutiny by parliamentarians. As can be seen in the transcript of the witness sessions, the Minister described the powers as a backstop, powers he hopes not to use. He told the Committee that he aspires to achieve all of his changes by consent and persuasion. I understand that he has also given that assurance to a recent adoption conference.
The Minister has been so persuasive in that respect that one of the witnesses, Sir Martin Narey, a mind for whom I have the utmost respect and admiration, thought that the legislation itself, rather than the intent, was designed to be non-prescriptive and innovative in changing our adoption arrangements. Of course, that is not quite true. I have no doubt that the Minister’s intention is to bring about the changes through consent and persuasion, but obviously if he was 100% confident of achieving that and 100% confident that he could bring us to such an outcome, he would not be seeking the powers in the first place.
We are being asked to give extensive powers to the Minister—to the Minister of the day—but Ministers come and Ministers go, so we can have no guarantee that the present incumbent’s successor would necessarily take a similarly benign view of such matters. The Minister himself, when we were at an event together shortly after the election, told the audience that he had calculated the probability of his remaining in his present post—strangely enough, the odds were not outstanding. Ministers come and Ministers go.
Steve McCabe
Yes, the Minister certainly has foiled them again—that is good. I wish him well and hope that he will continue in his post for quite some time. As we all know, reshuffles are fickle affairs, a bit like a Boris bus—one can never be too sure when the next one will turn up.
I tabled the amendment for two reasons. First, it provides me with the opportunity to query whether it is right that the Minister should have such unconstrained power as back-up, after setting out to convince us that it is not necessary and that he hopes never to use it. Mr Chope, in another parliamentary guise you are only too aware of the dangers of too much unnecessary legislation. Many is the Friday I have listened to you wax lyrical on such dangers, warning us that we have far too much legislation and should only legislate when it is absolutely necessary. That is the situation today with clause 13 and the power that would be afforded to the Minister to give directions under proposed new section 3ZA(1).
If the situation changed and if the Minister’s optimism and persuasive charm relating to achieving consensus evaporated, and he or a successor found himself or herself driven to use coercive powers to make changes in our adoption system, those powers should have been acquired by parliamentary order, subject to parliamentary scrutiny.
Bill Esterson
My hon. Friend is right. Every effort should be made to ensure that existing good arrangements are kept in place and are not disturbed, that any changes are an improvement on existing arrangements and in particular that good practice—there is much good practice around the country and internationally—is shared so far as is possible. Through that, we can keep in mind what I am sure everyone on the Committee and in the sector is committed to: doing the right thing for the children who come into the care system, whether that is adoption or other forms of permanence.
Edward Timpson
I think it is a stroke of luck that we once again find you, Mr Chope, chairing an important Bill on children and families, as you did in the previous Parliament. I am grateful to Opposition Members, particularly those who have spoken and who have put their names to amendments. The amendments in this group would require the Secretary of State to seek approval from both Houses of Parliament on any proposal for joint arrangements.
Before I get into the meat of the issue, I acknowledge the role that the hon. Member for Birmingham, Selly Oak played in the previous Parliament in scrutinising legislation on adoption and children in care. I am grateful for the constructive and helpful way in which he went about his business, which helped improve that legislation. I am sure that the way he approaches this Bill will have a similar effect.
It is true that I looked at the theory of Freakonomics and discovered that I had a less than 10% chance of finding myself in exactly this position again. Be that as it may, I intend to make the most of the opportunity that I have been afforded, starting with the Bill before us.
Before I speak to the amendments, I will briefly outline the thinking behind clause 13, because the hon. Member for Sefton Central has asked why it is needed. I will also outline the approach to implementing regionalisation in adoption. It is right to point out at the outset that the clause was in the Conservative manifesto, which the Government were elected on, and we intend to fulfil its contents. After much effort by myself and others, the creation of regional adoption agencies found its way into the final draft of the Bill.
Steve McCabe
I am sorry to intervene on the Minister so early, but will he clarify something? He says that the clause was in the Conservative manifesto, but presumably he means that it contained the intention to set up regional adoption agencies, rather than the intention to take the powers of direction specified in the clause.
Edward Timpson
I am sure that the hon. Gentleman has read the Conservative manifesto from cover to cover, so he will be familiar with the content on our intent to set up regional adoption agencies. The issue now is how we put them into practice and provide the underpinning to ensure that we fulfil that intent in this Parliament, which is why we are discussing the clause. The existing adoption system is highly fragmented, with around 180 agencies recruiting and matching adopters for only 5,000 children a year. Many agencies are operating on a very small scale, which, as well as being inefficient, leads to too much ineffective practice across the system.
The hon. Member for Sefton Central—I thank him for his kind words and continued interest and deep involvement on these issues—asked why we need the clause if there is already good practice in place. I remind him of what Carol Homden of Coram told the Committee on Tuesday:
“There is huge variation in performance between different agencies across the country, which results in a postcode lottery for children. It is important that we bring together the agencies and organisations in the pursuit of excellence and best practice for all children.”––[Official Report, Education and Adoption Public Bill Committee, 30 June 2015; c. 43, Q106.]
That is exactly what we are seeking to achieve through regional adoption agencies—to help address those issues.
Bill Esterson
I agree with the Minister—there is wide variation and we clearly need to improve quality. How often does he envisage applying the clause? Earlier, he said that it was not his intention to use it very much at all, so will he give us a sense of how often he thinks he will use it?
Edward Timpson
I am sure that the hon. Gentleman will appreciate that our approach to this issue is to ensure that there is local development of regional adoption agencies, based on those working on the ground and their knowledge and experience of how best to meet the challenge. We do not want to presuppose the amount of intervention that may be required to ensure consistency across the country. If we were to do so, as Sir Martin Narey made clear in evidence to the Committee, there is the danger of a top-down approach that would not bring about the best organisation of the different agencies. If those agencies are organised in the right way, we know that that will improve the three issues that the clause addresses, namely recruitment, matching and support. I will discuss those issues later on in my remarks, so the hon. Gentleman will have to be patient and learn more about the work that is already going on with local authorities and voluntary adoption agencies so that they can provide solutions themselves rather than being dictated to from the centre.
I will address each of the three issues—matching, recruitment and support—in turn. There is still an average of eight months between placement order and match. That is far too long. Research on family finding and matching by Professor Elaine Farmer found that in 30% of the cases looked at the delay was associated with an unwillingness to seek a family outside a local authority’s own group of approved adopters. Successful matching relies on looking at a wide range of potential adopters from the very beginning.
Despite impressive increases in the numbers of recruited adopters, there are still too few who are willing and able to adopt harder-to-place children. Recruitment from a wider geographical base than an individual local authority, taking account of the needs of children across a number of local authorities in a regional recruitment strategy, could lead to fewer children waiting.
At the moment, we know that the special support that many adopted children need is simply not available in their area because the number of adopted children is too low. Assessment and commissioning of specialist support on a regional scale will allow providers to expand their services and provide better value for money for the taxpayer, while also helping to ensure that all adoptive families receive a consistently high quality of assessment and provision.
To realise each of those improvements, we want to support local authorities and voluntary adoption agencies in delivering regional adoption agencies. We are absolutely committed to working closely with them to achieve just that. That is why we are providing £4.5 million of support in 2015-16; we wish to help early adopters of the regional adoption agency model accelerate their development and early implementation.
To answer the question put by the hon. Member for Sefton Central, we are confident that councils will step up and grasp the opportunity to improve their adoption services. As Sir Martin Narey said on Tuesday,
“I have yet to meet an adoption manager or director of children’s services who does not think that this is something that could make things better.”––[Official Report, Education and Adoption Public Bill Committee, 30 June 2015; c. 44, Q107.]
However, we recognise that we cannot be totally sure that all local authorities will voluntarily move to regional adoption agencies. That is why we introduced the clause, which gives the Secretary of State the power to direct local authorities to have certain adoption functions carried out on their behalf.
Steve McCabe
I am curious to know what the Minister’s last remark is based on. Which local authorities have suggested that they do not want to co-operate with his plans? Does he have evidence from Ofsted inspections or other sources that a number of local authorities are determined to thwart his plans? Is that the basis on which he is seeking these powers?
Edward Timpson
This is not the forum for naming individual local authorities that wish to co-operate or otherwise. To do so would damage the negotiations that are taking place. It is clear that where arrangements have been made to bring together local authorities’ adoption services and voluntary adoption agencies, there have been different levels of interest, intent and commitment. That is why we cannot be totally sure, despite the strong, positive signals from the sector and the work of the Adoption Leadership Board, that every one of the 152 local authorities will be involved in some way, shape or form within our timeframe for regional adoption agencies to be up and running across the country.
I can see what Opposition Members are driving at with their amendments, and I sympathise with their desire to ensure that decisions, particularly ones of this importance, are transparent and scrutinised properly. However, I am concerned about the suggestion that all proposals for joint arrangements should be approved by both Houses of Parliament. Before I explain why, I assure hon. Members that our decision making on this matter will be open, the process will be fair and we will involve all interested parties in the right way. The hon. Members for Birmingham, Selly Oak and for Cardiff West both made a challenge about transparency and scrutiny.
The Secretary of State’s decision to use the power will be made following extensive discussions with all the agencies involved, and it will be proportionate and reasonable. Agencies will have ample opportunity to design their own arrangements before any directions are considered. That is one of the reasons why we made it clear in the clause that local authorities could, through a direction, determine the shape of their regional adoption agency.
The Secretary of State does not need the permission of Parliament when she exercises her powers of intervention in respect of failure in local authorities’ children’s social care services. When the Doncaster trust and the Slough trust were created recently, the whole of those authorities’ children’s services were moved to a trust model without the permission of Parliament being sought in the way that the amendments set out. Those powers would sit legally uncomfortably with the group of amendments, should they be accepted.
A more appropriate and proportionate approach than returning to Parliament is to work closely with all those involved—the individual local authority and voluntary agencies, the Adoption Leadership Board and the regional adoption boards. This collaborative way of doing things is crucial, and it is a core tenet of our approach. The sector has the expertise and the local knowledge required to inform the decision.
I will reflect on the suggestion made by the hon. Member for Birmingham, Selly Oak that we should be required to send a letter to any local authorities we are minded to direct with an invitation to respond. I will come back to him on Report with my decision.
Kevin Brennan
I am grateful for the Minister’s remarks, and I am sure that my hon. Friend the Member for Birmingham, Selly Oak is, too. A letter would be a useful addition to what is on offer. The Minister said that our proposal would sit legally uncomfortably, but is it not different to the Secretary of State’s other powers, to which the Minister referred? Those powers are used where children are genuinely at risk. Does he envisage that he will introduce such arrangements because children are at risk, and therefore, in an emergency situation, or because it would be a better administrative arrangement? That would make a difference to the way in which the power could be exercised by the Secretary of State.
Edward Timpson
Of course, a failing local authority could be directed to arrange for another agency to carry out all its children’s services functions on its behalf even if its adoption function was not inadequate. The adoption services would still be moved as part of such a direction, so I do not see the differentiation. It is an interesting point, which we need to think through. In terms of the proportionality of what we are doing in the Bill, given the seriousness of removing all of a local authority’s children’s services functions and giving them to another body, if it is not the case with the latter, it should not be the case with the former. However, I have made it clear that the process needs to be very transparent and I am willing to reflect on some of the issues that the hon. Member for Birmingham, Selly Oak has raised. In view of that, I hope that he feels reassured enough to withdraw the amendment.
Steve McCabe
I am grateful for the Minister’s comments, but we are none the wiser now as to how often he might be tempted to use the powers. I hoped to clarify that in discussing the amendment. I notice that he stressed in his comments that matching was a key element, and he drew on the evidence given to the Committee by the chief executive of the Thomas Coram Foundation. However, in giving evidence, Andy Leary-May from Adoption Link said of the joint arrangements that matching was not the biggest issue, and that quite a lot of progress was being made. He said that the biggest issue was support, which we will come to later in the clause and which the Government seem to have overlooked in the construction of the proposals.
The other thing that has become apparent this morning is that the Minister cannot—or will not—say whether there is evidence of recalcitrant local authorities out there. We do not know why he has been advised to put the clause and powers into the Bill. He is unable to say. I cannot believe that he woke up one morning and, after reading through the Conservative manifesto again, thought, “Hey, that’s a good idea! I’ll just insert this into a Bill.” I assume that he has some basis for the proposals, but we have no idea of the scale of the problem. So my earlier point was that the power of direction will apply to the entire sector and be subject to no further parliamentary scrutiny. This is not a case of not any proposals, but relates only to proposals that are ordered by the Minister. He says that if we were to accept the amendment, we would be intervening on any proposals, but proposals that happen voluntarily are not affected. The amendment would affect only proposals that the Minister wants to order.
The Minister’s colleague might want to assist, but I was not persuaded by the parallel drawn by the Minister with the powers already available to the Secretary of State. I am more inclined to share the view of my hon. Friend the Member for Cardiff West about a power that is normally used to intervene in a failing authority or agency. It is a power that is exercised when there is evidence that something is going wrong, but the intention of this measure is to give the Minister the power to intervene if he feels that he is not getting his own way. That is what it is about—consent, but only on his terms. If authorities come up with valid reasons for not wanting to go down the route that the Minister indicates, they will be subject to his powers of direction and there will be no further scrutiny. I am not sure that that is the right way to proceed.
I said at the outset that I have a great deal of respect and admiration for the Minister. I am grateful to him for his offer to reflect on our suggestion of a letter of intent. It is a bit of a crumb, but one is always grateful. Having listened to the Minister and the concerns that those in the sector and hon. Members have expressed and having looked at the extent of the powers, I am not persuaded by what the Minister says today. The decision is a fundamental one; it is about whether Parliament scrutinises powers and has the final say or whether powers are subject to the whim of a Minister, which is not what we are looking for. I would like to push the amendment to a Division.
Question put, That the amendment be made.
Education and Adoption Bill (Fourth sitting)
Edward Timpson Excerpts(8 years, 10 months ago)
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The Chair
I remind the Committee that with this we are discussing amendment 13, in clause 13, page 8, line 41, at end insert—
‘( ) Where a direction under subsection (1) specifies that the functions are to be carried out by more than one agency, the specified bodies offered an opportunity to participate must include at least one voluntary organisation acting as an adoption society as defined by the Adoption Act 1976.”
This amendment aims to ensure that smaller voluntary adoption agencies, specialising in finding families for harder-to-place children, are not excluded from or by the new arrangements.
The Minister for Children and Families (Edward Timpson)
As ever, I am grateful to hon. Members for their amendments, which would require the Secretary of State to publish the specific criteria against which the body or bodies taking on adoption functions have been selected, and would ensure that when a direction specifies that functions are to be carried out by one or more agencies, at least one voluntary adoption agency is given the opportunity to be involved.
Before we broke for lunch, we had a helpful debate. I listened to the contributions, and I appreciate the intent behind the amendments and understand the need to be clear on how the decisions are made. I assure hon. Members that decisions will not be taken lightly. We intend to work closely with local authorities and agencies to shape the new regionalised system so that the excellence and quality that we want to drive across adoption services are realised.
I recognise the vital role that voluntary adoption agencies play in our adoption system. The country is fortunate to have an array of excellent voluntary adoption agencies—I believe more than 90% have been rated as good or outstanding by Ofsted—all with a deep expertise and commitment to improving the life chances of vulnerable children. I intend that they will continue to play an important role in the system as we move to regional adoption agencies. We have provided about £16 million of funding to voluntary adoption agencies, in expansion grants and other ways, so that they can beef up their capacity and maximise the role that they play in the delivery of adoption services.
We have already made significant and important improvements to the adoption system, with record numbers of children finding permanent, loving homes but, as ever, there is still more to do. I am sure that the hon. Member for Birmingham, Selly Oak has the “Regionalising adoption” paper that was published last month sitting on his bedside table along with the Conservative manifesto. The paper—he has it in the palm of his hand as I speak—sets out what we want to see from regional adoption agencies. It is clear that voluntary adoption agencies have an important role to play—a point that I reiterated in the evidence that I gave to the Committee on Tuesday. The paper says:
“We are particularly keen to consider models that have an element of cross-sector collaboration, bringing together the best of the voluntary and statutory sectors.”
As the hon. Member for Birmingham, Selly Oak mentioned, the paper includes a specific section on the role of voluntary adoption agencies. We want voluntary adoption agencies to seize this opportunity to provide more of their excellent services and to work with local authorities to deliver the best agencies for children; many, such as Coram, After Adoption, Adoption Focus, Adoption Matters Northwest and others are already doing so to great effect. There is no reason to assume that more cannot follow suit.
Our intention is that, as far as possible, the sector should move to regional adoption agencies by themselves and make their own decisions about what those arrangements look like, including whether their new arrangements appoint lead bodies and how local authorities and voluntary adoption agencies can best work together to deliver for children. I am clear that I want a system-wide change and that I expect all local authorities to be part of a regional adoption agency by the end of this Parliament. However, how they choose to come together is not something that I want to prescribe directly from Whitehall. As Sir Martin Narey said in his evidence:
“If we have to design top-down structures for regions across England, it will divert us from the more important task.”––[Official Report, Education and Adoption Public Bill Committee, 30 June 2015; c. 51.]
I take on board the observations made by Opposition Members about the experience in Wales: it has tried hard to scale up the operation of adoption there, but there may be issues about the consequences that that has had for voluntary adoption agencies. We clearly want to avoid that situation. That is why the Government will work closely with agencies to deliver regional adoption agencies and will provide both financial and practical support this year to help agencies come together to form the new agencies.
For local authorities that are unwilling or unable to rise to that challenge, we will look to use our powers to direct them to be involved. Even where we make a direction, we hope that the authorities we direct will be in a position to make their own decisions on who should carry out the functions on their behalf.
It is vital that this is sector-led as far as possible. Indeed, I want to ensure that the changes build on existing relationships, a large majority of which involve voluntary adoption agencies. It is important for the success of regional agencies that the new arrangements work well for and have the support of those involved, while responding to the characteristics and needs of the local area. The specific circumstances in which we use the powers will be shaped by how the system develops in response to the support we will provide to local authorities and voluntary adoption agencies to establish regional adoption agencies voluntarily. We will therefore not specify criteria at this juncture.
The good news is that voluntary adoption agencies are already formally or informally involved with consortia in regions across the country, with the majority of consortia having some contribution from voluntary agencies. For example, Coram is now working with several local authorities in London to form Coram Capital Adoption, and the partnership of Adoption Matters and Caritas Care has established a north-west concurrent planning service across 13 local authorities, operating through a contract with a single local authority partner: Blackburn with Darwen. That is all very encouraging. I want to see those sorts of arrangement strengthened and broadened. To that end, the substantial Government funding—the £16 million package of support for voluntary adoption agencies in the current and previous year—will put voluntary agencies in a strong position to do just that.
However, we believe that it should be up to individual voluntary adoption agencies to decide how they want to be involved. We cannot and do not want to direct them to be part of regional adoption agencies—something that the hon. Member for Birmingham, Selly Oak rightly acknowledged—as that would go against the flexible approach that we believe it is right to employ. I envisage voluntary adoption agencies not as an add-on or afterthought but an integral part of regional adoption agencies, as Opposition Members have said.
Where the Secretary of State specifies who is to carry out the functions on behalf of local authorities, I understand the need to ensure that such decisions are open and transparent. Any decisions will, of course, be made in a fair and evidence-based way after discussions with all relevant agencies. Decisions would also, rightly and importantly, be based on the particular situation of the local authorities involved.
I hope that we will see a range of responses from the host of voluntary adoption agencies I have had discussions with. I expect that some will put themselves forward to lead regional adoption agencies, while others will act in partnership with local authorities. For agencies that do not see leading or partnering as an option, the services they provide in recruiting adopters—particularly for some of our most vulnerable and complex children—and in providing adoption support will still be much needed by the new regional agencies. I assure Members that the Government are committed to working with agencies and local authorities and to being open and transparent about these decisions. In view of the approach I have set out, I hope that Members will feel reassured enough to withdraw their amendments.
Steve McCabe (Birmingham, Selly Oak) (Lab)
As I indicated at the outset, these were intended as probing amendments. We have had a good opportunity to air the issues concerned. I am grateful to the Minister for stressing that excellence and quality will govern his thinking on this. I note that he does not want to specify criteria at this juncture, but I assume from what he said that those will become clearer as time goes on. Will he keep Parliament in touch with developments up and down the country?
I acknowledge the Minister’s comments about the voluntary sector and the £16 million expansion grant, and I was encouraged by what he said about the role of voluntary agencies. I agree that “Regionalising adoption” is a remarkably good and straightforward read, and I would recommend it to anyone. I beg to ask leave to withdraw the amendment.
Amendment, by leave, withdrawn.
Edward Timpson
I thank hon. Members for tabling amendment 8, which would require the Secretary of State to publish a statement of the criteria to be followed in selecting prospective adopters to assess.
I commend the motivation behind the amendment, which the hon. Member for Birmingham, Selly Oak has just articulated extremely well. While I have some sympathies with that thoughtful intent, I am concerned that it has the potential to be detrimental to children waiting to be adopted. It also might be detrimental to the hopes and dreams of prospective adopters, which must be avoided. I will explain why I believe that.
It is important that agencies prioritise the needs of children who are waiting and that they actively recruit, assess and approve suitable adoptive parents who can meet those needs. I am also conscious of the national picture and the need for agencies to work together for the good of children across the whole system. Too tight a focus on meeting the needs of a small group of children in one area at a specific time may well mean that an ideal prospective adopter for a child in another area might be missed, or have their hopes dashed by being told that they are not needed or do not have the skills to become an adopter. That means that the whole system, not just that agency, will lose a person whom we should treasure, as was said a few moments ago, for having taken a big leap of faith in putting themselves and their family forward for an adoptive placement.
Bill Esterson (Sefton Central) (Lab)
While we are debating this amendment, I take the opportunity to say that we had written evidence from Link Maker Systems making the point that getting arrangements wrong could result in the downside of too many placements. Multiple placements cause children additional emotional damage, making matters worse, not better. Does the Minister agree that the point of this probing amendment is to ensure that we do not end up making a situation worse? Getting the balance right is essential, and that is what my hon. Friend’s amendment, which was signed by a number of us, drives at.
Edward Timpson
As I said, I commend the motivation behind the amendment and understand its purpose. Of course we want to ensure that a balance is struck in every case between making a decision as swiftly as possible and basing it on good-quality evidence that there is enough support for the placement to be durable for the rest of the child’s life with that family. We know from research by Julie Selwyn at Bristol University that the adoption breakdown rate is only about 3%, which suggests that there are some good-quality decisions being made on matching children with the right families with the right support.
We will discuss during debate on future clauses how we can enhance the support required so that we do not see cases such as the ones highlighted in Julie Selwyn’s research, in which things go wrong and parents and, most importantly, children suffer the consequences. I have read of many similar cases and talked to adoptive parents in my constituency and in my role as Minister. We do not want to risk making that an even more frequent occurrence.
I reassure the hon. Member for Birmingham, Selly Oak about the rigour of assessment and approval. Anyone who has been through the process of becoming an adoptive parent will know that it is a warts-and-all exercise, and that every aspect of their life is scrutinised from every angle. Not just the prospective parents but people who know them or who might have met them once have a part to play in building a picture of who they are as individuals and as a family, what challenges they face in their own lives and whether they have what it takes to take on the exciting but often challenging role of an adoptive parent.
Back in July 2013, we introduced the new framework for assessment and approval of adoptions, so that we could get the balance right between ensuring the required rigour of scrutiny and doing things in a timely manner, so that those who have taken the decision to put their names forward get the chance to build up a relationship of trust and feel that they are sharing their information securely, while being fully aware of what they are embarking on. That framework has now been in place for almost two years, and no signs have come to light that the assessment and approval process is not working well. We have ensured that the earlier part of the adoption process is well supported, with an additional £200 million to local authorities in the last Parliament to achieve that.
Of course, local authorities and their voluntary agency partners, and the new regional adoption agencies, will be best placed to know the needs of the children waiting in each area. Introducing regional adoption agencies means that agencies will be able to match the needs of children waiting with prospective approved adopters far more effectively. In addition, the Adoption Leadership Board collects and publishes data to help individual agencies see the regional and national picture of children and adopters waiting in other areas. I am sure the hon. Gentleman had the best intentions, but the publication from the centre of specific criteria for recruiting adopters at the level of detail required would not be helpful. I therefore hope that, having given him that reassurance, he will withdraw the amendment.
Steve McCabe
As I said, this is a probing amendment, so I do not intend to press it. I acknowledge what the Minister said. He was right to point out that the breakdown rate is low—based on Selwyn’s report on adoption—but surveys of parents and children in adoptive situations report high levels of stress, emotional problems and difficult behaviour, which, as he may know from personal experience, has an impact on families at various points throughout their lives.
I said earlier that I was full of admiration for these people. It is not the case that adoption is plain sailing from the point at which it legally takes place. All the evidence shows that that is often just the start of what can be a difficult and complicated journey, but I am sure the Minister appreciates that.
It is important that we have the right people, but I am not suggesting a tick-box exercise. I am not talking about the people who tick the appropriate boxes at the point of assessment; we need the people who have the strength and stamina to cope with the difficulties that will inevitably result in the years ahead. That is the point I was trying to stress. It is important that we do not end up with regional agencies being driven by a mentality that they have to up the numbers as opposed to finding the right people to do the job.
I note the Minister’s points about the Adoption Leadership Board. Perhaps we should continue to focus on that in the time ahead. I absolutely recognise that it probably does not make sense to lay down central criteria, but I ask that, during the Bill’s passage, he keeps in mind and reflects on the issue of numbers and the need to find the right people, because that will constantly be an important balance to strike. I beg to ask leave to withdraw the amendment.
Amendment, by leave, withdrawn.
Bill Esterson
I thank the Minister. He chaired both groups, so he is well aware of the good practice over a number of years of taking evidence from children and young people.
Bill Esterson
My hon. Friend is of course right. There have been suggestions about how to ask children for their views without putting them in a situation where they are uncomfortable or stressed, as the hon. Lady indicated. Good practice can be taken on board; I know the Minister is aware of some of that good practice, so perhaps he can refer to it in his closing remarks. I want to draw attention to the fact that the amendments raise important issues about a child-centred approach that takes in such considerations. I am pleased that we have been able to discuss them in this way. I look forward to his response.
Edward Timpson
I would like to speak to amendments 9 and 12 and proposed new clause 1. As we have heard, the amendments concern the functions that can be included in a direction, in particular about the adoption support function. The new clause would require the Secretary of State to report on the fitness of agencies to deliver the functions. Amendment 9 would add
“support identified in needs assessments of adopted children”
to the list of functions that can be included in a direction under the new clause. Amendment 12 would require consultation with children, adopters and other relevant people before any amendments to the type of local authority functions that could be included in a direction. The new clause would require the Secretary of State, before giving a direction, to commission and publish a report on the fitness of the authorities and agencies that he or she intends to direct. It would also require the assessment to consider specifically agencies’ ability to deliver support for education and adult employment for adopted children, mental health assessments and support services, and matching services.
I am grateful to the hon. Members on both sides who contributed to the well-informed debate on the amendments. I can understand the reasons why the amendments were proposed; it is certainly imperative that we ensure that the list of functions that regional adoption agencies can deliver is the right list and, as the Committee would expect, I wholeheartedly agree with the ambition to ensure that those carrying out adoption functions are fit to do so. That is particularly true when it comes to the needs of adopted children and their families for good, timely adoption support services.
Let me turn first to that last point, which is particularly raised by amendment 9. The amendment would add the wording proposed to the list of functions that can be included in a direction under the new clause. The amendment seeks to ensure that local authorities are under a duty to provide the adoption support identified in the needs assessments of adopted children. I should note that the wording does not describe an existing function and therefore it cannot be added to a list of functions in the way proposed. The clause already enables the general adoption support function to be covered in any direction. However, I fully appreciate the hon. Members’ reasons for proposing the amendment and seeking to ensure that local authorities are under a duty to provide adoption support identified in needs assessments of adopted children. As the hon. Member for South Shields said, we can all see the strong moral argument for providing high-quality support to children and families who are dealing with the impact of early abuse and neglect. There is also a strong financial imperative, for obvious reasons.
It is in no one’s interests for adoptive placements to falter, or even break down, in ways that could have been avoided had good support been available at the right time. I know from my family’s experience of adoption that unless there is support and a good assessment of the needs of not only that individual child but the family coping with the fallout from that child’s early life experiences, it can cause unnecessary harm and damage to the prospects of that family. It is also the support that will best ensure that the underlying causes that have created the behavioural difficulties, outbursts or friction in the family are understood and dealt with.
That is precisely why I was determined to establish the adoption support fund, which rolled out this year. We are providing more than £19 million of funding to support adopted children and their families. That means that when local authorities assess the needs of adopted children they can now draw on the fund to provide a wide range of support services. I am delighted that already more than 250 families have been supported through the fund since it began in May, accessing around £1.5 million of the overall funding pot.
As I argued during the passage of the Children and Families Act 2014, I believe that the adoption support fund is a better solution to the ongoing challenge of meeting the needs of adopted children and their families, compared with imposing a duty to provide on local authorities. By adding significant extra money into the system, the fund will help both to improve access to adoption support services and build provision of those services. It will enable local authorities to assess properly and not be tempted, as they could be under a duty to provide, to under-assess, and do it consistently in the knowledge that there is an additional source of funding to pay for packages of support.
In addition, we expect that the fund will help to stimulate the opportunity for adoption and support providers to grow by acting as a commissioner of services. Those benefits would not have been realised through a duty to provide.
I shall take this opportunity to share with the Committee one of the stories that have already started to emerge from the adoption support fund, about a family that has benefited. The family said that Jacob had settled really well into his family but, as a result of experiencing parental drug use, domestic violence and neglect in his birth family, he had been having some emotional problems at home and school. An application was made to the adoption support fund and, as a result, Jacob, his mum and dad are taking part in a course of Theraplay. The money provided by the adoption support fund has meant that the therapy has been able to happen quickly in their home town and is delivered by a worker whom they trust. That opportunity has had a significant impact on the family and it means that Jacob has the best chance to settle into his school and continue to be loved and secure in his family. That is exactly the sort of outcome that we hoped for when we set up the fund at the beginning of last year.
Mrs Lewell-Buck
I really welcome the fund. In discussions around establishing the fund, did the Minister consider that a lot of these children have mental health needs and issues prior to adoption? Was no consideration given to putting money into services that could help the children before they were adopted, as opposed to once they are adopted?
Edward Timpson
The hon. Lady is right to highlight the role that mental health plays in the lives of many children, not only those who are adopted but in the care system. I was struck when growing up by how many children, sometimes very young, were displaying what I now know to be the impact of mental health problems. The role of mental health in the therapeutic support that the adoptive families will need through the fund is very much part of what is on offer. We have a list of different therapies that are available through the fund, and that is kept under review to ensure that we have the right mix of therapies to meet the demand from applications to the fund. The greatest need and the main source of applications has been post-adoption therapeutic support.
We are struggling to see each other through the hon. Gentleman’s head.
Edward Timpson
Perhaps the hon. Gentleman could lean to the right. If he leant to the right, he could come and join us.
Edward Timpson
We want to establish a clear route to fund the assessed need of support, and the adoption support fund is relentlessly focused on achieving that. I alluded a few moments ago to the fact that when we were considering the best way forward for post-adoption support, we heard concerns to the effect that if there were simply a duty to provide, irrespective of what funds were available, the normal approach from local authorities through assessment would continue and the problems of under-assessment might still prevail. I understand the point that the hon. Gentleman is making, however.
I see our approach as incentivising good practice rather than simply saying to local authorities, “This is what has to be done.” It has enabled some innovation in how local authorities approach such issues, and they now draw from a wider area of expertise to find the right service for each child. The approach is in its early stages—the fund has only been established for a few months—but we have already seen that it is beneficial for many families, because of the flexibility that it gives to local authorities, both through the assessment process and in how they work with families to understand exactly what they want to apply to the fund for.
I turn to amendment 12. I understand the desire for consultation before the making of regulations that would change the type of local authority functions that could be included in a direction. I reassure the Committee that I am firmly committed to taking into account the views of children, adopters and local authorities when we develop our approach in this area, and I am happy to put that commitment on the record. Only yesterday, I had the opportunity to meet the new Children’s Commissioner, Anne Longfield, to discuss how, through her good offices, I can continue to have a dialogue with children from all parts of the care system. As Minister for Children and Families, I continue to meet regularly with children who have experience of adoption, with care leavers and with those who are still in care. That is an important part of developing a full and rounded understanding of the approach needed to make a real difference for those children.
Steve McCabe
In my zeal to comply with the strictures of my Whip and stick to the timetable, I omitted to mention amendment 12 in my earlier comments. Such is the power that the Whips exert and the fear that they inspire. Since the Minister is addressing the point, may I ask a question that is also pertinent to the point that the hon. Member for Portsmouth South raised? The Minister says that he is committed to ensuring that young people and parents are consulted. Will he say something about how that will be transacted? We all run up against the classic local authority model of consultation, which is rarely very satisfactory, in my experience. It certainly does not set out to involve the kind of people we are talking about. Will he say something about how he will ensure that we hear the views of those people, who have real experience?
Edward Timpson
I assumed that the hon. Gentleman did not refer to amendment 12 because his argument was so strong that he did not think he had to make it. I took the opportunity to respond to the amendment, but I thank him for his clarification. I have set out the direct conversations and dialogue that the Department and I have with children and young people, which is an important part of the consultation.
In relation to decisions on adoption, adoption support and the functions there may be in any part of the country, we have the Adoption Leadership Board, which comprises the Association of Directors of Children’s Services, Adoption UK, the British Association for Adoption and Fostering and others. Each region has its own leadership board. Those charities and boards are excellent forums through which to elicit exactly that type of knowledge, so that when we consider the vision of adoption support, it reflects the needs and desires of the children who will benefit from the fund and the support that flows from it.
Crucially, the whole design of the regional adoption agency approach is based on the need of children, adopters and agencies to eradicate unnecessary delays and inefficiency. Successful matching relies on being able to access a wide range of potential adopters from the beginning. Operating at a greater scale will allow social workers to do that, which will help reduce delays. The evidence is overwhelming that delays in the system cause lasting harm to vulnerable children. As Professor Julie Selwyn found,
“delay…has an unacceptable price in terms of the reduction in children’s life chances and the financial costs to local authorities, the emotional and financial burden later placed on adoptive families and future costs to society”.
We will, of course, expect regional adoption agencies to factor in adopters’ needs and views when they are developing their delivery and practice models. We are already demonstrating our commitment to ensuring that the voice of users is able to influence service provision in adoption. On top of the leadership boards, we are currently grant-funding Adoption UK to improve the adopter voice across the adoption system, and particularly to engage with agencies on a range of issues, including prospective adopters’ experience of matching. We expect that learning to feed in to the development of regional adoption agencies. Having listened to hon. Members this afternoon, I will take the opportunity to discuss with Adoption UK and others how they can make the voice of adopted children somewhat more prominent in their work, so that we get as good a picture as possible.
Finally, I turn to the proposed new clause. I will not speak at length as I have covered a number of the relevant points, particularly about what we are doing to ensure strong adoption support to adopted children and families. As hon. Members would expect, I wholeheartedly agree with the ambition to ensure that those carrying out adoption functions are fit to do so.
I also agree that supporting adopted children through their education, into employment, in their mental health and in the original matching decisions is vital. I commend the hon. Member for Sefton Central on the formation of his new all-party parliamentary group on foetal alcohol syndrome because that remains a feature of the lives of far too many children and it needs to be tackled. I welcome his interest and look forward to hearing of the work of his group in due course.
I reiterate that the purpose of the adoption clause in the Bill is to ensure that adoption services are provided at the right scale and to a high quality.
Bill Esterson
I thank the Minister for his words about the APPG, and take the opportunity to invite him to give evidence to the inquiry that we will hold in the autumn.
Edward Timpson
I will look forward to receiving the hon. Gentleman’s letter.
I firmly believe that the process of moving to regional adoption agencies provides opportunities to tackle the geographical barriers in the system and to build on existing strong practice while eradicating weaker practice. Our implementation approach, set out in the now seminal “Regionalising adoption” paper published last month, is clear that improving the way we deliver adopter recruitment, matching and support functions is a central aim of the programme.
Any directions that we issue to local authorities will be based on the need to form regional agencies that can operate on a more efficient and effective scale and deliver an excellent standard of practice. This is also an opportunity for authorities and agencies to innovate and consider the wider benefits of regionalisation, including, for example, the development of regional centres of excellence for therapeutic support, which agencies could make available to looked-after children as well as those who have left care through adoption. It is worth noting that local authority duties for adoption support remain unchanged, even if they are delivered through a regional model. We strongly believe that regional adoption agencies will improve children’s outcomes, and we are delighted that many in the sector have expressed their support. There are many benefits to regionalisation, not least enabling children to be matched with their forever family more swiftly and giving providers the confidence to expand their adoption support services so that vital services are widely available and provide better value for money for the taxpayer.
We are determined to make this work. We are absolutely committed to working with all those who have an interest in developing regional adoption agencies, in order to ensure that the structure and quality of service delivery are set at the right level, and that voluntary adoption agencies form part of that solution. We will provide financial and practical support to those who volunteer to rise to the challenge of transitioning to new arrangements. If it proves necessary to use these powers, we will need to ensure that all new arrangements are fit for purpose. Agencies will, of course, continue to be subject to Ofsted inspections. The Bill includes a power for the Secretary of State to issue a direction to terminate arrangements, that could be used where there are concerns about a regional adoption agency.
I hope that I have provided reassurance, and in view of my earlier points, I urge the hon. Member for Birmingham, Selly Oak to withdraw his amendment.
Steve McCabe
I accept the Minister’s technical analysis of amendment 9, which I have no desire to press to a vote. He understands what lies behind the amendment, and it seems that my concerns are shared across the Committee.
I have already congratulated the Minister on the adoption support fund. I assume, from what we have heard today, that he intends the fund to continue, at least for as long as he is in this post. The fund is great, but is he absolutely sure that all families are sufficiently clear about how to access its benefits? Some of the feedback I have had suggests that that might not be the case. Will he reflect on that and share his thoughts at a later time?
I am grateful for the Minister’s comments on amendment 12, which I also have no desire to press to a vote. I accept his assurances and was pleased to hear his commitment to exploring further how children’s voices can be heard in this process. I have been struck by how often I come across people who say, “No one ever listened to me. No one ever asked me. If they had, I might have told them they could have done it differently.” No matter how long we have been in these roles, I come across that constantly, and it is very important.
In my zeal to get through this grouping, I managed to skip over new clause 1. That is extraordinary, because I normally like to talk for as long as possible. I presume, Mr Chope, that we will vote on new clause 1 later, but I am grateful for the Minister’s comments on it.
What attracted me to new clause 1 is a point made in the Barnardo’s briefing that I mentioned earlier—namely, that we provide support and access to personal advisers for people leaving care up to the age of 25, provided they are in education or training. That is extraordinary, because the very people we would think need extra support and advice are those who are not in education, employment or training. The purpose of new clause 1 is to make that support available for those who have been adopted. I would like to see that as an option for people in any kind of permanence arrangement. I am not saying that people who have made it into education or training do not continue to need support, but they are at least on a ladder and have some potential. We should be preoccupied with the people who are dropping to the floor. That is the purpose of new clause 1, but we will return to that at a later stage. For the time being, I beg to ask leave to withdraw the amendment.
Amendment, by leave, withdrawn.
Steve McCabe
I beg to move amendment 10, in clause 13, page 8, line 38, after subsection (4) insert—
‘( ) The Secretary of State shall make arrangements for the independent inspection and monitoring of the functioning of arrangements resulting from a direction under subsection (1).
( ) Where an independent inspection or monitoring report raises serious concerns about the functioning of arrangements subject to a direction under subsection (1), the Secretary of State must consider whether to exercise his power in subsection (4).’.
This amendment aims to ensure scrutiny of new arrangements established by Ministerial Direction and promotes remedial action where the results of scrutiny raises serious concerns.
I am glancing at the clock and the Whip—I will attempt to make some progress. The amendment is relatively straightforward and I hope that there will be no need to press it to a vote, although that depends on the Minister’s response. The purpose of the legislation is to change the arrangements covering the provision, management and performance of our adoption services. The Minister has been clear at various stages about his aims, so we do not need to go over that ground again. However, we do not know how any new arrangements will be monitored. I assume that such arrangements will be subject to Ofsted inspection, but will the Minister confirm that?
At present, adoption arrangements in a local authority are monitored as part of a whole authority inspection process. Given that the new arrangements are likely to include the formation of consortia with more than one local authority, and hopefully more than one voluntary agency and also perhaps other bodies, what will be the monitoring and inspection arrangements? I hear the Minister when he stresses that he does not want a one size, one shape fits-all solution, but it seems likely that we could end up with quite a large number of regional groupings: earlier today I pointed out that in Wales 22 local districts had morphed into five regional agencies.
I am curious to know how much variety we are likely to see in England. Will the Minister tell us a bit more about exactly what will be inspected and how it will be inspected? Given the variety I referred to, what plans does he have to make comparative judgments on performance and behaviour possible for what could be quite different types of consortia?
It is not really in my nature to anticipate the worst outcome; I generally like to look on the bright side of life, but it seems to me that part of our job in scrutinising the legislation is to ask these basic questions now, so that we have a clear idea about who the new agencies will be accountable to and how their work will be monitored and inspected. That is not least because, like Dr Homden from Coram, I want to know about excellence for children. I want to know about the practice that is really making a difference, and I want to know that we are identifying and spreading that practice so that we really succeed in improving the speed and quality of the adoption process.
When we embark on new ventures, we find that they do not always go according to plan. The Government of which I was a member had problems with some of their reorganisations, and the previous Government did not exactly carry out the health and social care reorganisations without difficulties. As we will hear later, there are concerns that the Government’s academies and free schools programme is not always adequately monitored, which has led to what we think is a rather dilatory approach to problems in certain schools and in certain areas. I am anxious to help the Minister to ensure that we do not run into those kinds of problems with this adoption Bill. I want to know, in the event of something going seriously wrong, that the Minister will have access to all the necessary information, and sufficient powers to intervene before the problems or difficulties escalate.
Ministers often find it relatively easy to identify problems caused by people in other organisations—that is true of Ministers of all parties and Governments, and their civil servants—and they are good at offering up solutions to remedy those problems, but they have a remarkable blind spot when it comes to problems or difficulties of their own making or the unforeseen consequences arising from their own initiatives. We do not want that to happen here. We want the Minister to succeed in what he is trying to do. If there are problems—if things go wrong or do not work as anticipated—it is important that we know that there are clear lines of accountability, high-quality monitoring and inspection procedures and a range of actions available to the Minister to put things right. That is what the amendment seeks to identify.
I anticipate that the Minister will want to tell me about the technical deficiencies of the amendment, so let me say in advance that I am trying very hard to spell out clearly its purpose. I hope he can offer satisfactory reassurance on this matter, which would go a great way towards relieving my concerns and those of my colleagues. A significant number of agencies and bodies have raised this issue with me during our discussions on the Bill. I look forward to hearing the Minister say that he understands those concerns. I hope he is as anxious as I am that my mind is set at rest.
Edward Timpson
I am grateful to the hon. Gentleman for the amendment and for raising the important issue of how the new regional adoption agencies will be held to account. I assure him that I will dwell not on the technical difficulties of his amendment, but on how the regional adoption agencies will be held to account. First, they will be held to account through Ofsted. The same accountabilities that apply to local authorities and voluntary adoption agencies will apply to the regional adoption agencies.
Like the hon. Gentleman, I am a glass-half-full sort of person. Although I fully expect that regionalisation will result in better, higher-quality practice and adoption, if the performance is not good enough and children are being let down, the Secretary of State will not hesitate to use the powers available to her to take action where necessary, as she does under the current arrangements.
To extrapolate, the new regional adoption agencies will be inspected by Ofsted. Legislation already requires all adoption agencies to be inspected, and the regional adoption agencies will be treated no differently. We will expect Ofsted to inspect the new agencies themselves, as it does with voluntary adoption agencies, and look at how the local authorities attached to the agencies are working with them to ensure the best possible outcomes for children. We will continue to work closely with Ofsted to ensure that the way this works in practice is robust and proportionate.
Steve McCabe
I do not know whether I am labouring the point, but I am genuinely curious to understand it. There are two slightly different inspection processes at present: the agencies are inspected and the local authorities have their adoption functions inspected as part of a wider inspection process. Given that we will now have regional adoption agencies, which will bring together several voluntary bodies and local authorities, which inspection process will be applied? Will there be a complete inspection of a regional adoption agency, or will part of it be subject to an inspection and part reliant on the former model of inspecting local authorities?
Edward Timpson
As I have set out and as is already the case, an agency, as in a voluntary adoption agency and in future a regional adoption agency, has its own inspection of its service. In addition, there are inspections of children’s services, including any in-house agency, and that covers how a children’s service is working with that aspect of the service that it is providing through the agency. Furthermore, if a voluntary adoption agency is carrying out those functions on behalf of a local authority, the working relationship between the authority and the agency and how well they are working together will form part of the children’s services inspection. So we are trying to ensure that there is no over-inspection or duplication, but still a clear focus on every aspect of the individual functions and of the agency or local authority carrying out the function.
We will continue to work with Ofsted to ensure that we get things absolutely right. The Adoption Leadership Board will continue to collect and publish quarterly data on the performance of the adoption system, so that we can identify over and above what Ofsted inspections are telling us about where there is excellence, thus helping to spread it more widely across the system. We will be able to see where aspects of the service are not up to scratch as well. If a regional adoption agency was found to be failing, the Secretary of State would consider how best to bring about an improvement with all the powers at her disposal and where necessary.
Steve McCabe
Again, I am trying hard to visualise how that will work in practice. Each regional agency will in effect operate as a single entity, but from what the Minister says the voluntary components will be subject to an inspection, but the local authority will be inspected as part of the children’s services inspection, with some kind of bridging operation to see how well they work together. What will happen if the voluntary part of the entity is revealed to be working well, but the local authority component has significant problems? How will he intervene then?
Edward Timpson
No, the comparison that I was seeking to draw is with what happens now: a voluntary adoption agency is inspected as an individual agency and the children’s services inspection includes the local authority’s relationship with the voluntary adoption agency that has taken on the authority’s functions. Substitute “voluntary adoption agency” with “regional adoption agency” and I am talking about the same type of inspection—within a regional adoption agency, the voluntary part and the local authority part are not differentiated, so it is an entity in itself.
Regional adoption agencies might all have a different form: the adoption functions under the Bill might be taken on by one local authority on behalf of a whole region, by a voluntary adoption agency or by a newly created consortium agency. The inspection regime that happens now for a voluntary adoption agency and for what is done in conjunction with a local authority is what is anticipated will happen in future. We are ensuring, by working closely with Ofsted, that we get that absolutely right, so that everyone is aware of who has responsibility for what, who will be accountable for what and how that inspection will work. I am happy, as ever, to continue to provide the hon. Gentleman with details of the inspections that will take place once we have completed our discussions with Ofsted. That is certainly the position now and the one that I anticipate for the future.
Kevin Brennan
I do not want to detain the Committee for long, but it is important to note briefly, in view of what was said earlier, that these amendments are very much in the spirit of the Adoption and Children Act 2002, which I mentioned. The hon. Member for Kingston and Surbiton should realise that these vehicles do not come along very often and that it is important, when legislating, to look at an issue comprehensively, rather than pick out one part of a problem. The problem that we are addressing is that of permanency for children in this situation.
The 2002 Act was groundbreaking in many ways, because it attempted to widen the number of prospective adopters. For example, my hon. Friends and I introduced amendments that, on a free vote on the Labour side, granted for the first time the right for unmarried couples, including same-sex couples, to apply to adopt. There is a small but interesting piece of history: the then Leader of the Opposition—now the Secretary of State for Work and Pensions—whipped his troops to vote against that proposal, and it ended with the resignation from the Front Bench of the right hon. Member for Buckingham (John Bercow). That was the start of his pathway into the speakership, so these things sometimes have a strange impact.
The other thing that that Bill did was not just to look at adoption, but to try to look at alternative permanency arrangements, in recognition of the fact that the popular perception of adoption, even back then, was very different from the reality. The popular perception is that it is always about young babies being given up for adoption. Although that was very much the case in decades past, things have changed significantly. That is not really the picture that we see when we look at what kinds of children are adopted and at their ages. That is why the introduction in that Bill, through the amendment to the Children Act 1989, of special guardianship orders was a groundbreaking step. It is unfortunate that we have not taken the trouble to revisit that—I would be grateful to the Minister if he explained why when he winds up—and looked at how we can strengthen other kinds of arrangements for permanency, given how important they are within the system.
Edward Timpson
I should like to speak to amendments 11, 25 and 26, which have been tabled by Opposition Members. I will come on to some of the matters raised towards the end of the debate, such as other routes to permanence. It is important to remember that clause 13 deals with the point at which the court has already made a decision to place a child for adoption, so we are not looking at whether that decision is right; we are accepting the fact that that decision has been made, but looking at what we need to do to improve the prospects of that adoptive placement being successful.
The amendments raise the important question how regional adoption agencies link to, impact on and work with other parts of the children’s social care system, including other types of permanent placement such as long-term foster care, special guardianship and kinship care, as well as the provision of mental health services. Amendment 26 would require the Secretary of State to commission and publish an independent evaluation on, in effect, alternative options to a regional adoption agency that capture all permanency options and approaches to prevent children from having to be taken into care in the first place.
I will speak about this in a bit more detail later, but I agree with much of what the hon. Member for South Shields said about the early interaction of children and families with children’s services and about making sure that from the earliest opportunity, the work that is done with them enables the child, if at all possible, to continue living with their birth family. That is clear not only in legislation—it was reiterated in the Children and Families Act 2014, which is underpinned by the Children Act 1989—but in the approach that we have taken through the innovation programme, which I will talk about in a little more detail later. In that programme, we seek to encourage much more work with families through family group conferences, the expansion of the family drug and alcohol court and other innovative programmes, to increase the prospect of children being able to stay with their birth family.
I thank hon. Members for raising the important issue of how we are reforming the care system and improving outcomes for all children. We share a determination to ensure that all children in or on the edge of care get the right support and decisions for them and their families and that, when children need to come into care, they are placed in strong, stable placements as quickly as possible, with the support that they need to thrive. It would be hard to argue against that approach.
I understand the desire for all permanency placements to be captured by the new regional agencies. The new agencies will have to work with other parts of the system to be successful. I assure hon. Members that our intention with this legislation is to bring down barriers to effective working, not to create new ones. However, there are clear reasons why we are proposing the power to direct regionalisation for adoption services specifically and why that is not necessarily the best approach or the priority for other parts of the system when the decision has been made on where the child’s future lies.
It is often noted that the number of children in the care system who go forward for adoption is small—a point that was made by the hon. Member for Sefton Central—relative to the number of looked-after children, which is why regionalisation is particularly appropriate for adoption services. The fact is that the adoption system remains highly fragmented relative to the number of children and adopters involved. As I said earlier, we have about 180 different agencies recruiting and matching adopters for approximately 5,000 adoptions a year, so the agencies are not benefiting from economies of scale; but worse, the localised nature of the system acts as a barrier to effective recruitment, matching and support. That is starkly illustrated by the fact that 3,000 children are still waiting for forever families.
Mrs Lewell-Buck
I welcome the programme that the Minister is discussing, but am I right in thinking that the innovation programmes apply only to certain local authorities, not right across the board? Those authorities who are not taking part will be those who are saying that they are overburdened and unable to meet demand. In my experience, social workers are already incredibly innovative, so they do not need money chucked at them to be that. What they need is freedom from bureaucracy and the scope to do their jobs.
Edward Timpson
The innovation programme was set up specifically to address freedom and flexibility at ground level so that practitioners—whether social workers, health visitors or others who work in children’s services—can do what they came into the profession to do: to work directly with families, helping them to turn their lives around, and to use their professional judgment, which for too long has been shackled by much of the prescription and box-ticking that is expected of them.
We were purposely not prescriptive in the innovation programme, either. We said to local authorities, voluntary organisations and others, “You come forward with your own ideas as to how you think you can better deliver children’s services. Tell us what barriers are preventing you from doing exactly that. They may be regulatory, financial or cultural, but, whatever they are, we want to try to remove them so that you can provide the highest possible standard of children’s services.” The response was overwhelming, with almost 300 replies from every region, right across the country, including the north-east. I am happy to provide the hon. Lady with a list of the projects in her area.
I had the opportunity to go up to the city of Durham, where an excellent programme is working with families in the community to ensure that they do not reach that point of crisis at which interventions may be needed. That illustrates that there is desire and enthusiasm to improve what is available in the care system before intervention in a child’s life and interaction with children’s services.
Such learning will not be owned solely by the local authority or the groups who collaborate to deliver that project. The information can be disseminated through the innovation programme, which is being carefully evaluated. I will give the hon. Lady and other Members another example. In North Yorkshire, there is £2 million for the “no wrong door” approach, which is testing out how specialist foster carers can work alongside two children’s homes to provide better support, which includes mental health services, education and rebuilding links with their families, for up to 700 young people leaving care. That includes testing what is called a staying close approach, which supports care leavers up to the age of 21 in ways that they say they wanted to be supported. That may be through accommodation, a trusted mentor or keeping links with their education provider. Those are all examples of some of the many projects—53 to date—that we have funded to inject greater innovation and creativity into children’s services so that we can tackle some of the entrenched issues. We are determined to build on that record in this Parliament, and transform the quality of child protection services in England to ensure that the quality of support for looked-after children, whatever placement is right for them, continues to improve. The new child protection taskforce is a strong demonstration of that intent.
Of course, no one would disagree with the hon. Member for Sefton Central that the best interests of a child have to be at the heart of every decision made on their behalf. Clearly, adoption is no panacea when deciding what the future holds for a child in care, but it provides a fantastic opportunity for children for whom adoption is right to have the life that they deserve. My hon. Friend the Member for Kingston and Surbiton made an excellent point that the fact that we are trying to fix what Sir Martin Narey called the long-term decline in adoption—commendably, the Labour Government also tried to fix that decline—does not mean that we cannot continue to drive improvement across the system. I welcome any views, experiences or suggestions from hon. Members on how we can do that further.
Special guardianships, which were mentioned by the hon. Member for Cardiff West, are an interesting and important innovation. In the almost 10 years since their inception, there has been exponential growth in special guardianship orders to the point that they are at about the same level as adoption, but we have never seen a proper review to understand their impact. Which children are being put forward for special guardianship? What is their age profile? Who are the special guardians? How are the placements faring in terms of support? What is the breakdown rate? There has been some research, but the time has come for us to understand the role played by special guardianship orders. They are helping to provide more children with permanence.
Taking that cohort together with adoption and long-term fostering, more children are getting the permanent placements that we all want them to have. We have instituted a review, and we have set up an expert working group, of which Andy Elvin, who gave evidence to this Committee, is a member. I will be meeting the group in the coming weeks to establish exactly how we can pool together the collective knowledge out there on special guardianship orders so that we can understand the role they can play in future.
This has been a helpful debate. I reiterate that the focus on adoption is right, but that does not mean that we are not capable of making improvements elsewhere in the care system, as we did during the previous Parliament. That remains our goal, and I hope that the hon. Member for Birmingham, Selly Oak feels reassured enough to withdraw his amendment.
Steve McCabe
I congratulate the Minister on his list of achievements, some of which are very impressive—I am serious when I say that I congratulate him—but obviously we do not think of that as job done; we think of it as job begun. There is a long way to go, and we will continue to hold him to account on the other issues.
I note the Minister’s comments on virtual heads, and he is right that they have been a great innovation. Of course, they are a Labour innovation on which the Government have built. In fact, the adoption agencies have requested that they be extended to adopted children, which the Minister has so far omitted in this legislation. I do not wholly agree with his description that the measure applies only where there has been a decision to adopt. Obviously plans change, and proposed new section 3ZA(3)(d) of the Adoption and Children Act 2002 is still about the process of placing a child. I am not sure whether he is entirely accurate about that. Likewise, he talks about 3,000 children, but we heard evidence that in many of those cases, perhaps as many as half, the plans have changed. I am not totally persuaded.
Edward Timpson
Three orders are made by the court in relation to adoption: the care order, then the placement order and then, eventually, the adoption order. We are talking about the placement order, the point at which the court decides that a child should be placed for adoption. A final order is made by the court on the permanence issue, but I accept that a placement order is not the same as an adoption order and that a matching process still needs to be undertaken after that point.
Steve McCabe
That is fair enough. The Minister gets my point.
This has been a useful debate, and I will conclude by saying that I am pleased to hear what the Minister said about regional permanence hubs. This is a constantly evolving situation, and we are looking for how to get the best out of the resources at our disposal, which is a substantial part of the argument that my hon. Friends and I have made. With that, there is no purpose in pressing the amendment to a vote. I beg to ask leave to withdraw the amendment.
Amendment, by leave, withdrawn.
Clause 13 ordered to stand part of the Bill.
Ordered, That further consideration be now adjourned.— (Margot James.)
Education and Adoption Bill (Second sitting)
Edward Timpson Excerpts(8 years, 10 months ago)
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Louise Haigh (Sheffield, Heeley) (Lab)
Q 14 Annie, you mentioned the inter-agency barriers that still exist. Could you confirm that the Bill actually does nothing to address any of those barriers other than creating bigger agencies? Secondly, to the whole panel, do you think that this will actually restrict choice for adopters in terms of agencies at a local level?
Annie Crombie: On the inter-agency point, the policy around regional adoption agencies would bring together a number of local authorities. At the moment, if a local authority purchases an adopter from another local authority or from a voluntary adoption agency, it pays for that adoptive placement. It pays the same amount whether it is to a local authority or a voluntary adoption agency. That levelling of the amount paid is an achievement of fairly recent years, and it has meant a great deal in terms of sustaining the participation of the voluntary sector. It cannot afford to do the work it does unless it gets paid a fair price. That has also been an achievement because it has ensured that local authorities would not look more favourably on another local authority placement just because it was cheaper, and genuinely think about which is best for the children.
A regional adoption agency—while it has reasonably not yet been worked out what that would look like—will probably change the way in which money changes hands when a child is placed from one local authority with an adopter. It might mean being placed elsewhere with an adoptive parent approved by a different part of the region. It might mean there is a single adopter, approver and recruitment arm in a regional adoption agency and so all of those adopters feel free to you. That could be a really good thing because there will be a much bigger pool and there will not be any financial barriers stopping the placement of a child with a particular adopter. The risk for the voluntary sector is that if it is not part of that, suddenly the cost drivers change and the placement feels very expensive again. That is why it is so important that we think about how the voluntary agencies can continue to be part of the landscape and part of the regional agencies.
Carol Homden: On your point about choice, there are some areas, with reference to the previous question, where in practice there is no choice. There is a local authority agency and I’m sure it works in the full best interests to meet the needs of those adopters, but generally, choice is a positive thing in any system. It tends to drive quality and, in a digital era where, for example, people can search for information on adoption first, they are better able to make a judgment and to find an agency with which they feel comfortable. An adopter is making a life-changing, lifelong decision. They need to have full confidence and trust in the particular social worker or group of social workers that they are working with. It is a risk to us if this reform process leads to a reduction in choice across boundaries, particularly given that there is generally a much higher level of engagement from and satisfaction of adopters from the first call to voluntary adoption agencies, which deepens through the process, including with post-adoption support. The point needs to be about protecting equality and choice in whatever arrangements we make.
Sir Martin Narey: The only thing that I would like to add is that the really important choice element in adoption is the choice of child. These arrangements will significantly increase the choice of children for adopters. At the moment, if a prospective adopter is unlucky enough to be living in one of the 20 local authorities that dealt with fewer than 20 adoptions last year or in a local authority where there are already many more adopters than children, it will be very difficult to get a child. The future is finding the best parents for adopted children, wherever they are. You are taking evidence later from Adoption Link. I think that is an incredibly good initiative, which is opening up the prospect of searching beyond regions to find the very best possible adopters. I am sure this will improve adopter choice significantly.
The Minister for Children and Families (Edward Timpson)
Q 15 Carol very helpfully set out some guiding principles on what should underpin the development of regional adoption agencies to make sure that they are driving the excellence that we want to see, as we have set out in our “Regionalising adoption” paper. Could you also say what the risks are of the Secretary of State being overly prescriptive through a direction about what that regional adoption agency should look like, given that we are hoping and expecting this to come from the bottom up on a local level rather than be dictated from the centre?
Sir Martin Narey: The reason that I counselled you and your predecessor Tim Loughton against making structural arrangements to further recruitment is that I thought it would result in you, your officials and me being absorbed in nothing else for two or three years. We would just be managing the incredibly complex business of using new structures. That is why I hope that you do not have to use this direction very much at all. If you do, there will be a very great risk that it diverts us from the more important task of making sure that we are getting children from neglect and into adoptive homes as fast as possible. I am confident that you will not have to use this power very much, but if you do, it will be a significant risk. If we have to design top-down structures for regions across England, it will divert us from the more important task.
Carol Homden: I would agree with that. This is a direction of travel where all agencies are motivated by one key thing, which is trying to improve the outcomes for children, but we also need to recognise that it can be challenging to apply that best practice. If the risk is that, due to the direction from above, you have the unwilling working with the unwilling, it will not necessarily lead to a positive outcome. We need to design these approaches based on a clear diagnosis of the problem to be solved locally. We need to enable organisations to come together in ways that address those problems, as opposed to having one size fits all or an obvious type of solution. That is why I drew attention to a hub-and-spoke model, as opposed to, for example, an area that is contiguous, because of the issues that were raised earlier around children needing to be placed in circumstances where they are and can be safe. We also need to draw upon specific, specialist expertise, as Annie said. The risk would be that it might be gotten wrong unless the diagnostic approach is taken to identify how local problems will be particularly addressed.
Annie Crombie: All I would like to add is that, where we see arrangements working well now—there are some excellent examples of partnership working in adoption—they are based on trust and strong relationships. If we impose such arrangements, we will not be able to take account of those sorts of things that can develop so well at local level organically. It is important that we allow people in organisations to build on those partnerships and have that dialogue at this point, leading into the development of regional agencies.
Kevin Brennan (Cardiff West) (Lab)
Q 29 Thank you, Sir Alan. There is only one clause in the Bill about adoption. In theory, what should happen after this session is that we look at your evidence and then think of any further amendment or improvements that might be made to the Bill. Unfortunately, because clause 13 is being debated on Thursday, we are out of time for that, but the Chairs have indicated that they will look favourably on any amendments that we might submit, even at this late stage, before Thursday. Is there anything that you think should be added to the Bill to improve it by way of an amendment or new clause?
Hugh Thornbery: The two things that I have mentioned: the duty to provide adoption support on the basis of an assessment of need and the extension of virtual schools to cover children adopted from care as well as looked-after children.
Andy Leary-May: For me, it would be an extension of what the Bill focuses on to cover other forms of permanence. Also, is there any way to inject some degree of required caution about how the power might be used? Rather than having a blanket movement and assuming that it will create improvement in all areas, maybe it could start a little more cautiously and take it step by step.
Edward Timpson
Q 30 In the Children and Families Act 2014, we took a backstop power in relation to the recruitment of adopters, so we could ensure that enough came forward who could be assessed and approved for the children still waiting to be placed for adoption. We have not had to use that power, and we have been successful in increasing recruitment by, I think, more than 27% in the past 18 months to two years.
This power widens it out to include matching and support, which we have discussed in this session. Based on the fact that there are already good working relationships between local authorities and consortia, which often include voluntary adoption agencies, and based on our statement on page 12 that, as we articulate in our paper “Regionalising adoption”, we need to harness the important role of voluntary adoption agencies in forming regional adoption agencies, how confident are you that in the next few years, through the work of the Department, yourselves and others with an interest in getting it right, we can ensure that we scale up services in all those areas so that we do not need to use the power on recruitment, as we have not yet had to do?
Hugh Thornbery: I am confident in the sector’s ability to improve. The examples that you have given have demonstrated that with the right degree of encouragement, and sometimes financial support, the system has been able to transform itself in terms of reducing delay, increasing the supply of adopters, improving adoption support and so on.
I think that there are systemic and cultural barriers to moving from those single entities working in partnership with each other to entities coming together to form a new entity. There are issues of governance and accountability. I think that we have seen some progress toward consortia working well. The progress that has been made toward a more formal consolidation has, in most cases, got quite close to achieving it and then stepped back. We need to understand why that is happening. I think it has to do with some of those issues that I have just mentioned.
Andy Leary-May: Within matching, in some ways we are already there, in that a local authority’s ability to have visibility of available adopters is already there. That was why we built our system, and it is there. It is about the decisions made as to which placements they go for. I do not think that those problems will be solved by regionalising agencies and it is important that they are addressed. If there were regions that for whatever reason do not come together as a regional agency, those other problems would still need to be addressed. But in either case I think there will be problems.
I think it is important to remember that a local authority may be willing to look widely when it is looking for a match for children, but local authorities do often hold on to their adopters. They need to be making adopters available from the earliest point, because otherwise the pool of adopters will never be big. I think that could be changed in other ways.
The Chair
Mr Thornbery and Mr Leary-May, we are very grateful for the evidence that you have put forward to us today. We may be in touch again if anything crops up from that evidence or if we need something further. Thank you very much for your attendance. That concludes your participation.
Examination of Witnesses
Alison O'Sullivan, Anna Sharkey and Andy Elvin gave evidence.
Louise Haigh
Q 44 The British Association of Social Workers has said that the Bill will contribute to demoralising social workers. Do you agree?
Alison O'Sullivan: I cannot see how.
Anna Sharkey: I think retaining staff is very important. We have quite a secure staff group, but we have also done quite a lot of growth, which has been to do with the DFE expansion grant. That is significant, but we have a very definite system through which adopters are seen right the way through by the same social worker. That is because it is about building trust and rapport with the person whom you are going to trust with very personal information and about making you into the family you want to be. There has got to be that professional relationship, but that relationship also has to be with the child’s social worker, and that is often where there can be change and flux, because there is such turmoil in local authorities.
Andy Elvin: We have no problem in recruiting and retaining experienced social workers, although I must say that we recruit a lot from local authorities. I think there is a wider issue—probably not for here—about how many social workers there are in the system when permanence is achieved for a looked-after child. Do we really need a supervising social worker overseeing a fostering placement that is permanent and a looked-after children’s social worker also overseeing the said placement and an independent reviewing officer? Are there too many social workers looking at social workers doing their jobs and not enough actually doing the job?
Edward Timpson
Q 45 Can I take us back to the clause in the Bill looking specifically at the point at which the permanence decision has been made and what flows thereafter for those for whom that decision is adoption? I have two points to underpin that. First, we are not proposing something new here. A lot of this already exists. Could you tell me where you have come across a consortium of either local authorities or voluntary adoption agencies and local authorities working together that has impressed you most and that does not happen to be your own?
Secondly, in relation to the specialist support services that we know many children who are adopted need, how is the regional agency adoption approach having a positive effect, where we are already starting to see it happen?
Andy Elvin: We are currently working with the north London adoption consortium and the east London adoption consortium—south London is a regular choice—on introducing something called VIPP-SD, a post-adoption therapeutic intervention that comes from the University of Leiden in Holland. It is used with all adopters in Holland. It is evidence based and tested at country level. We are introducing it with six authorities in London and with one just outside London. We found co-operation patchy, I would say.
We have got six authorities across two consortia; other authorities in the consortia have not signed up to it. That was disappointing, given that the DFE for the CVAA are essentially paying for all this. It is a free and evidence-based service. It is interesting how decisions are made in local authorities, but those that have engaged have engaged magnificently and really well, and got involved very much in the spirit of the intervention. It is going very successfully so far. Local authorities can work together; I do have examples of the contrary, but that is the same in all areas. I do not think children’s services are peculiar in local authorities not working particularly well together.
Anna Sharkey: From my point of view, working in ABC has been really good, a very positive development. I know my local authority colleagues will say that one of the strengths has been that it came from the bottom up. It was local authority social work working together and deciding that was a more efficient way of working, so pooling resources in respect of recruitment and training activity, how we do information events and so on. The next stage, which is really exciting in terms of the pilots and so on, is about how we are making the linking activity work much more effectively, and also looking at post-adoption support provision.
I know one of the previous speakers talked about the importance of accessibility and the transport networks. People need to be able to access their social worker and support that is readily available for them and their children. There are all sorts of things that can happen as a consequence of this, but definitely the bottom-up bit has certainly helped.
Alison O'Sullivan: I will very briefly point to Warrington, Wirral and St Helens, established I think in 2011, because it is the sort of thing the Bill envisages and has been working well. It has improved the numbers and the speed of recruitment and matching. For many years, Yorkshire and Humber have also been running post-adoption support on a collaborative basis across the region.
Andy Elvin: Can I just add that I am on the board of Frontline social work? We hope to be moving into a new region in the north-east, and the attitude of the consortia of local authorities up there has been exemplary in the way that they are working together. It really is very impressive.
Steve McCabe
Q 46 I have heard what has been said about permanence but, given that this legislation is supposed to be about speeding up the adoption process, cutting out the delays and helping match children to families—that is what we are taking evidence on—is there anything missing from the legislation that we should be taking on board and which would really make a difference to speeding up adoption and helping the matching process?
Andy Elvin: When you are in the court process and you have a CAFCASS guardian, you have a judge and everyone is represented, often delays are caused by availability of adoption panels and the panel process. I have often wondered about how much oversight is actually needed in terms of an adoption. There is a question about if you are overseen at a court process, you have an independent court witness in the guardian, and whether that could be looked at. I know working in local authorities that was often the cause of adoption delay; it was being unable to reach panel in a timely fashion to do with court deadlines. I think that is a more systemic problem that has been around for quite a long time.
Anna Sharkey: For me, the concern is thinking about how the financial situation would work. The levelling of the inter-agency fee meant that local authorities obviously charge each other the same amount of money as I charge them, so it was a recognition of the work that is done. If there are regionalised adoption agencies that are all part of that, my view is that the framework under which financial transactions happen is likely to change.
If that is the case, my concern would be that we do not have the same sort of framework as in the fostering arena, which you, Andy, have alluded to in terms of spending a huge amount of time trying to do tender documents and different arrangements, depending on who you are working with, which come back and do something later that was not necessarily intended. It is trying to work out what that would be.