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Introduction
This report projects a bold new vision for unpaid carers in Scotland - a vision based on a strong framework of rights, in line with the Universal Declaration of Human Rights. In this vision, the caring contribution of carers to society will be fully recognised, the economic impact of their contribution accepted, and as such they will be wholly included in a society which will provide adequate support to carers.
Carers will have rights to flexible employment practices; adequate financial support and planning; accessible information and technology; practical support; regular breaks from caring; adequate housing; training and health care; good transport links; accessible leisure and recreational opportunities.
Our society will allow carers to be people first and unpaid carers second who can fulfil their potential as citizens. Unpaid carers will be afforded the opportunity to choose when, how, and if they care. And those not already caring will view unpaid caring as a positive life choice, which is underpinned by the human conditions of love, empathy and devotion to fellow human beings.
Purpose
This report sets out the recommendations of a research project on the future of unpaid carers in Scotland, commissioned by Care 21, a social care innovation unit within the Social Work Services Policy Division of the Scottish Executive. This work was undertaken by the Office for Public Management ( OPM) between October 2004 and August 2005.
OPM was commissioned to undertake this exercise with the purpose of pulling together thinking on how the situation for unpaid carers can be improved in Scotland, and to make recommendations to the Scottish Executive and other agencies on how this can be achieved. The recommendations in this report arise from several work streams described in more detail in Section 1 of the report. Evidence for each of the recommendations can be found in reports in the appendices which accompany this report, and which provide detailed results of each of the work streams. Each of the work streams generated findings of its own, and the recommendations in this report emerge from a synthesis of those findings.
The research process has uncovered an impetus for change for unpaid carers in Scotland and a call to reinvigorate the carers' agenda. We have discovered progressive policy direction for unpaid carers but also uncovered some gaps between existing policy and practice. Therefore, in addition to making new recommendations on the future of unpaid carers, the report includes recommendations which may already be familiar to many. Such recommendations have been strengthened by the robustness of research processes involved in this exercise, and the comprehensiveness of consultation undertaken.
Summary
This report projects a bold vision for unpaid carers in Scotland - a vision based on strong framework of rights.
Overall, the research has made a number of significant gains in taking forward a consideration of the future role of and outcomes for unpaid carers. 1 It is the first time that unpaid care has been the specific focus of a 'futures' research project in the UK. It has also created a comprehensive picture of the caring experience in a Scottish specific context which underpins the report's vision with the aspirations and consensus which exist on the targeting of public resources.
It is anticipated that the recommendations within this report will consolidate existing thinking on support for unpaid carers, whilst also creating new solutions for the future.
One overriding and consistent message emerged: unpaid carers are the largest group of care providers and as such, the largest component of the Scottish care 'workforce', making an enormous contribution to society, however this is valued.
Unpaid carers are generally optimistic about the future of unpaid caring over the next decade. However, one of the key findings from the national carers' survey suggests that the longer a person has been an unpaid carer, the more pessimistic he or she is about the future of unpaid care in Scotland.
Just over half of all respondents to the national survey felt that the Scottish Executive does not understand the role of unpaid carers 'well at all'. 2 Respondents were more pessimistic still about the Westminster government's understanding of the unpaid caring situation.
The most important actions cited by unpaid carers are those that would improve their quality of life, and these form important recommendations in this report:
- giving unpaid carers a right to regular breaks from caring and providing more and better quality respite options
- increasing the benefits of people with support needs
- offering cash payments rather than services so that unpaid carers can arrange care according to needs and preferences
- a greater emphasis on information and training, advocacy, and guidance, including emotional support.
To achieve the aspirations of carers and the recommendations in this report, it is suggested that this be best supported by the principles of:
- Greater recognition of and respect for unpaid carers as key partners and providers
- The development of a rights based policy framework to support unpaid carers.
This means that any person with caring responsibility should have the right to the same opportunities as others, including the right to refuse to care, to choose an appropriate level of caring ( i.e. to maintain a work-life balance), and for any intensity of caring to receive appropriate support from those agencies that are properly resourced to do so. This rights approach further develops the principle of recognition and respect for unpaid carers. It also validates choice, and brings unpaid caring into line with the rights based approach promoted, and largely accepted by government for people with a disability, children, women, minority ethnic groups and employees, but without elevating the needs of unpaid carers beyond any other group. Also, it embraces the huge diversity of unpaid caring situations within a rights framework that is applicable to all, whether they care now or in the future.
The research concludes that if the recommendations within the report are implemented the future for unpaid carers in Scotland will be a positive one.
Resources
Many of the recommendations detailed in the report relate to change in practice or culture. However, some of the recommendations cannot be considered as 'cost neutral' and will have associated resource implications. It is not the purpose of this report to cost recommendations but to highlight to the Scottish Executive where additional resource may be required.
Reserved matters
Most of the recommendations in the report refer to issues that can be progressed by a devolved government in Scotland. However, some recommendations, such as benefits issues, relate to reserved matters that can only be progressed at a UK government level. It is the intention of the report to outline such recommendations, after which it is anticipated that the Scottish Executive will consider how to convey such recommendations to UK ministers.
Terminology
For the purposes of this report, the term 'unpaid carer' is used to describe individuals who care for a friend, relative or neighbour without receiving paid income in addition to income received through the benefits system e.g. carers allowance. This terminology is currently widely accepted by carers' organisations and differentiates unpaid carers from those who receive a regular wage for the caring task.
The legal definition of a carer is someone who provides substantial amounts of care on a regular basis for either an adult or a child, where that adult or child receives, or is eligible to receive, support services under the Social Work (Scotland) Act 1968 or the Children (Scotland) Act 1995. Family members caring for children in a range of circumstances will not come under the legal definition of a carer unless the child in question has a disability or is affected by disability.
Structure of the report
This report is presented in four sections with two annexes:
- Section one is a summary of the research methodology. As noted above, this report is supported by five separate appendices. The detailed methodology for each of the research strands is set out in the relevant appendix.
- Section two presents key principles, themes and recommendations for the future of unpaid care in Scotland. The recommendations are presented under thematic headings, illustrated by quotes selected as representative of the issues presented here, taken from the 'voices of carers' report of focus groups and individual interviews with unpaid carers across Scotland. 3
- Section three presents areas where additional research may be required.
- Section four is a summary of all recommendations in the report.
- There are two annexes. Annex One is a summary of the development of policy relating to unpaid carers in Scotland to date, while Annex Two is a list of appendices which accompany this report.
We hope that this report will reinvigorate future carer policy in Scotland and beyond and help to clarify thinking and sharpen action. This report and the accompanying appendices do not contain the future but, used well, might help others to create one which improves the quality of life for unpaid carers whilst also maximising their contribution.
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