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CHAPTER 5: MEETING THE NEEDS OF FOSTER CARERS

There is a range of different fostering arrangements. Research shows that foster carers want their role and contribution to be valued and acknowledged, to ensure that they are included in all aspects of the fostering process and to ensure that support mechanisms are in place for them. However, remuneration is consistently identified as a barrier to the recruitment and retention of foster carers and there is inconsistency in the rates paid and the approaches to remuneration to foster carers across different local authorities. This chapter examines these issues and looks at ways to overcome barriers to foster care.

The consultation document posed 8 questions around the subject of meeting the needs of foster carers and covers:

• Remuneration for foster carers;
• Registration of foster carers;
• Wider support for foster carers.

5.1 INVOLVEMENT OF FOSTER CARERS IN THE DEVELOPMENT AND REVIEW OF A FOSTER CHILD'S CARE PLAN

Question 7. Do you agree that foster carers should be more closely involved in the development and review of a foster child's care plan?

5.1.1 The data indicates that 72 consultees agree while only 8 disagree, with 3 giving a qualified answer and 28 not replying. A public body commented "Foster carers' involvement in care plans should be proportionate to their involvement in the care of the child. It should be a question of meeting the child's needs rather than the carer's. It is certainly important that foster carers feel valued, but there are other ways of doing this through evaluation of the service or support, especially around a particular child. In some cases it will be appropriate for foster carers to have a significant input into the care plan; in others not."

5.1.2 At one of the events for foster care workers the report indicated 26 supporting the involvement, one against and one undecided. Thirty-seven attendees at an event for foster carers indicated their support with none against.

Chart 5.1 Whether foster carers should be more closely involved in the development and review of a foster child's care plan (n=111)

If you've answered yes, what do you think are the best ways of involving them? (Please tell us about any specific examples of good practice you are aware of.)

5.1.3 Again, comments came not only from those replying yes to the initial question, but also those saying no, depends, or from those giving no response There were general comments from 10 consultees that carers should be involved in plans as they know the children best. This comment was also made in reports from 9 events.

5.1.4 The key comment on involving carers, from 31 consultees and mentioned at 6 events, was general agreement on the need to involve carers in planning, care plans and reviews. "Good practice dictates that carers should be closely involved in the development and progression of a child's care plan, as well as providing good quality day-to-day care for the child." (local authority). This was the key theme to emerge from voluntary /charity organisations and from local authorities. In addition, 24 consultees and attendees at 6 events stressed the need to listen to carers and take their views into consideration. At an event for foster care workers an attendee commented "Carer's views very important. Should be listened to. Quite often social workers do not include carer's views in reports. Need to be given more respect/credence." Twenty consultees along with attendees at 4 events felt carers could contribute to Looked After Child ( LAC) meetings and that their attendance should be encouraged. This was the main theme emerging in relation to this question from foster carers. A fostering agency felt "Foster carers should be consulted when developing care plans. Foster carers may appreciate / benefit from training which would enable them to develop confidence to contribute at LAC Reviews, and other relevant meetings."

5.1.5 The issue of training and support in order to ensure effective involvement was raised by 17 consultees with 5 commenting on the need to develop knowledge and skills. Training needs were raised by attendees at 3 events attended by foster care workers and one for foster carers. "For them to be fully involved they might need support to be able to attend meetings and training in understanding group processes and how to present information and opinions effectively in multi-agency settings (verbal and written)." (fostering agency)

5.1.6 Sixteen consultees suggested that carers should produce written reports, diary entries or other information to contribute to the development of a care plan and this was mentioned at 2 events. A carer's group also suggested "Perhaps carers should also fill in a report form for the hearing panel as they do for Child Care Reviews, this would avoid any conflict with Social Workers or distress to children/parents at the Hearing."

5.1.7 There were some comments, from 9 consultees and at one worker event, that carers are already closely involved, with some comments that the process works well at present. A local authority commented that it is their current practice "to involve foster carers in core group meetings for children in their care and Looked After Reviews that provide opportunities for them to make significant contributions to the development and review of the care plan."

5.1.8 There was some concern over the extra burden that involvement might place on carers; 2 consultees commented on the increased demands on a carer's time including this comment from a local authority "Any further involvement can present problems for carers who work, even part time. If expectations of working systemically in partnership create too many demands, given the time it will take, the nettle of fostering being a 'full time job' needs to be grasped."

5.1.9 Better, more open, fuller communication was highlighted as important by 7 consultees while 5 wanted to see improved respect between carers and social work or other staff, perhaps through raising the status of foster carers. "Currently foster carers are often hampered in their ability to make decisions for the children in their care by their lack of authority and status. As a consequence the lives of the children that they foster are disadvantaged by bureaucratic indecision and a lack of clarity about authority and responsibility as well as a lack of resources in terms of either social workers or ancillary professionals." (fostering charity). Three commented on the need for more consultation while 2 consultees and attendees at 2 events mentioned the need to ensure the children or young people are involved.

5.1.10 There were a variety of comments from 9 consultees regarding social workers with 4 consultees mentioning that there sometimes exists an element of mistrust between the social worker and foster carer and others commenting on the pressures on social workers in terms of case-loads and the need to find suitable placements quickly. There were similar comments made at 6 of the events. One Local Authority consultee commented "It is though, sometimes the case that carers do not feel their views are given due regard by social workers." An event for foster carers produced a comment that "we have the child 24/7 yet we are often ignored by social workers who see the child for 1 hour a month but often less than this."

5.2 REMUNERATION FOR FOSTER CARERS

Question 8. Do you agree that there should be a minimum or standard rate of fostering allowances?

5.2.1 Minimum rate of allowances: 42 consultees answered yes; 13 answered no and 56 did not give an answer (see chart 5.2). It should be noted that of the 56 not stating an answer on the subject of a minimum rate of allowance, 27 did indicate support for a standard rate. It is not possible to ascertain whether this means that these consultees do not want to see a minimum rate or whether they would merely prefer a standard rate and so these have remained unclassified. Twenty-eight consultees did not state an answer on either a minimum or standard rate.

"Article 27 of the UNCRC recognises 'the right of every child to a standard of living adequate for the child's physical, mental, spiritual, moral and social development.' The primary responsibility lies with parents or others responsible for the child's care; but Government must assist where necessary. It is important to recognise that the payment of allowances is money for the children, not for the benefit of the carer. Many carers have to give up jobs to care for the children and the lack of financial provision can result in carers taking on debt to buy necessities. There should be a minimum rate for allowances, but there must also be a clear and consistent system of assessment of the needs of the carers and the child to ensure that an adequate level of funding is provided." (public body)

Chart 5.2 Whether there should be a minimum rate of allowances (n=111)

5.2.2 Those events reporting on this part of question 8 supported a standard, rather than minimum, allowance. At a foster carer event 22 attendees wanted to see a minimum allowance while 27 wanted a standard one; there were 4 votes against a minimum and 3 against a standard. At an event for foster care workers 5 said yes and 6 said no to a minimum allowance but there was support from 23 for a standard allowance with only 2 against. An unquantified report from another workers' event indicated support for a standard, rather than minimum allowance.

5.2.3 Standard rate of allowances: amongst consultees this again received more support than the minimum; 59 consultees answered yes; 11 said no and 41 did not give a direct answer of either yes or no. A local authority consulted workers in its family placement team "All workers agreed that there should be a standard rate of allowances. Some felt that it would have to be at Fostering Network's rates as some fostering agencies already pay at these rates." Thirteen of the 41 consultees not giving a direct answer did voice support for a minimum rate.

Chart 5.3 Whether there should be a standard rate of allowances (n=111)

5.2.4 Twenty-seven consultees, especially local authorities, and attendees at one event felt that rates should be set at the level worked out by the Fostering Network or BAAF as the real cost of fostering; while 25 wanted to see rates set at the level recommended by the Fostering Network or National Foster Care Network. Reports from 5 events also included this comment and this was the key comment from foster carers in relation to question 8. One local authority "supports the view that there should be a standard rate of allowances rather than a minimum, therefore promoting equality not only between Local Authorities but also with Independent Fostering Agencies. This should be a realistic payment per child which is calculated according to the costs of raising a child. The BAAF document which deals with the true cost of fostering provides some useful guidance."

5.2.5 Views on how rates should be decided included:

• enhanced rates for caring for the most demanding or challenging cases (12 comments and mentioned in 4 event reports);
• rates should be related to the age of the child (11 comments and 5 events);
• index linked / linked to the cost of living (8 comments and 2 events);
• equivalent or related to state benefits (4 comments);
• should be income related (2 comments and mentioned in one event report);
• that the allowance should be sufficient for the carer to live on (one consultee and one foster carer event commented on this).

5.2.6 There were suggestions as to specific needs that should be funded and these included 17 comments on the need for allowances to cover expenses such as hobbies, school outings and activities with an individual proposing "Allowance might include all routine costs to carers e.g. food / energy bills / clothing / extra-curricular activities / books but also an element for holiday costs, birthday celebrations etc for replacement of equipment e.g. washing machine." This was mentioned as important by attendees at 5 foster carer events. Eight consultees wanted to see allowances to cover equipment replacement or household wear and tear as did attendees at 3 events for foster carers. "Some children may compensate for previous neglect and poor diets by eating large quantities of food or being 'faddy'. These difficulties lead to additional expenditure on many items including laundry, food, household decoration and the frequent replacement of toys, clothes and other equipment." (fostering charity).

5.2.7 Nineteen consultees raised the issue of the problems of funding any increases, with the need for central funding highlighted by both the consultees and 3 reports from workers events. This included a local authority who suggested "Allowances should be based on a minimum recommendation by BAAF and the National Foster Care Network with this funding supplied centrally through the Scottish Executive. This will result in the need for considerably more investment in children and young people in care."

5.2.8 Consistent levels of allowances across the country were important to 15 consultees and by attendees at 9 events, although 2 consultees felt that this would be difficult to implement. An individual consultee felt "A standard allowance has the appeal and appearance of fairness but the Devil is in the Detail. A single standard remuneration package paid by all fostering agencies (local authority, private, and voluntary) would have much to commend it and would greatly simplify recruitment strategies across the board."

5.2.9 Linking allowances, on a case by case basis, to the level of ability or experience of the carer or the amount of work needed in providing care was suggested by 7 consultees and by attendees at an event for foster carers who said "the experiences shown by carers through training i.e. skills, training towards certificates and modules."

Question 9. Do you think that there should be a minimum or standard rate of fostering fees?

5.2.10 Minimum rate for fees: 36 consultees answered yes; 13 answered no and 62 did not provide a definitive response. It should be noted that of the 62 not stating an answer on the subject of a minimum rate of fees, 20 did indicate support for a standard rate. It is not possible to ascertain whether this means that these consultees do not want to see a minimum rate or whether they would merely prefer a standard rate and so these have remained unclassified. Forty-one consultees did not state an answer on either a minimum or standard rate. One consultee indicated they did not want to see a standard rate of fees but did not give an answer on a minimum rate.

"A minimum rate should be calculated at the very least by using the Fostering Networks recommended rates, with an automatic inflationary rise build in annually." (foster carer)

Chart 5.4 Whether there should be a minimum rate for fees (n=111)

5.2.11 At the events workers favoured a standard fee with 13 for and 2 against; there were 7 for a minimum fee and 2 against. An unquantified report from another workers event indicated support for a standard, rather than minimum fee. The foster carer event which returned a quantified answer also indicated more support for a standard fee; 23 supported a standard with 20 wanting to see a minimum fee. Four attendees were against a minimum with 3 against a standard fee.

5.2.12 Standard rate for fees: 41 consultees answered yes; 19 answered no and 51 did not give an answer. Nine of the 51 consultees not giving a direct answer did voice support for a minimum rate.

"It was felt to be helpful to also standardise fees nationally but that within this a range of fee payments was helpful which could reflect the skills and experience of the carer, and also a higher reward for more challenging placements." (local authority)

5.2.13 All 6 events for foster carers returned comments in support of fees for carers as did the 4 worker events. The kinship carer events did not cover the question of allowances or fees and the combined kinship and foster carer event did not state a preference in relation to fees.

Chart 5.5 Whether there should be a standard rate for fees (n=111)

If you've answered yes, please give your suggestions on how this should be calculated.

5.2.14 Once again, comments came not only from those replying yes to the initial question, but also those saying no or giving no response. Responses were very similar to those given at question 8.

5.2.15 While a small number of consultees, at the last question, suggested linking allowances to the level of ability or experience of the carer, a higher number, 20 consultees, felt this was also appropriate for fees. This was the most common suggestion from local authorities. This was also identified by attendees at 5 events. Twelve consultees, the largest number of whom were foster carers, and a report from a foster carer event also mentioned that fees should be linked to the work expected of the carer, while 6 consultees and reports from 3 events suggested it should vary according to the needs of the child.

"Senior foster carers will usually be experienced foster carers who have a track record of providing high quality care to a wide range of children or children with high levels of need. They will also be involved in training and supporting other foster carers, they may be involved in recruitment activities or in other fostering work. The level of fees should reflect the level of experience, and level of other work required or expected and might equate to a senior residential worker." (fostering charity)

5.2.16 Sixteen consultees, along with attendees at 6 foster carer events and 3 worker events, felt that fees should be structured to take account of working conditions including pension, employment status, sickness and people leaving paid employment. There were comments, at 5 events, on the need for foster care to be treated as a profession with associated benefits. "Need to have in place pension provision, sick entitlement, fee payable in between placement - 'retainer', holidays - leave/pay." (foster carer)

5.2.17 " Authorities should be able to set fees according to the demands and expectations they will have of carers and the needs of the looked after children in their area." There were 7 comments from consultees who felt that levels should be determined locally; reports from 2 events for foster carers also included this point. However, consistency across all areas was again mentioned; by 12 consultees and from 5 events. One local authority pointed out problems in standardising fees "This is a more difficult issue- there is a greater range of payments for fees within authorities, and across them. To standardise, which would have to be at the higher rate of payment to avoid reductions in payments to some carers, would mean a considerable investment, and similarly need central funding."

5.2.18 Funding issues were raised by 8 consultees, mainly local authorities.

5.2.19 Once again, the recommendations on fees by the Fostering Network or National Foster Care Network were supported; 8 consultees thought these recommendations were appropriate as did attendees at an event for foster care workers. Six consultees and a foster carer event report indicated a desire to see fees set at the level worked out by the Fostering Network or BAAF as the real cost of fostering and 6 consultees and a report from an event for foster care workers wanted to see a change to the tax and benefits system which some perceive to be unfair. A voluntary/ charity organisation stated "Current system for non foster families should apply i.e. family tax credit. Child tax credit should apply with an additional uplift of no less than £25.00 per week. It has to be recognised that foster carers apply to become foster carers not for profit, but because they want to care."

5.2.20 Some consultees mentioned that fees should not stop after the 2 ^nd child, with 6 consultees and 2 event reports proposing that the fee should be based on the number of children being cared for.

5.2.21 Other comments from small numbers of consultees included:

• monies to cover equipment replacement or household wear and tear (3 comments);
• that fees should be related to the age of the child or young person (3 comments);
• that the fee should take account of any extra expenses which may be incurred (2 comments);
• regular reviews increasing fees in line with inflation or other form of indexing (2 comments and one event);
• there should be an element of reimbursement to cover equipment replacement (3 comments).

Question 10. Do you think that financial support should include an element for replacing or purchasing one-off items, such as a washing machine or a car?

5.2.22 Sixty-one consultees answered yes; 15 answered no, 5 gave a qualified response and 30 did not give an answer.

5.2.23 Ten attendees at an event for workers said yes while 2 said no. One event for foster care workers indicated that this should be available for capital items. There was support from 25 foster carers at an event with only 4 against.

Chart 5.6 Whether financial support should include an element for replacing or purchasing one-off items (n=111)

Please give reasons for your answer.

5.2.24 Twenty-six consultees made general comments in support of allowances or fees containing an element for replacing or purchasing one-off items, as did attendees at 5 events. This was the main theme emerging from local authority responses to question 10. There were 8 comments, half from foster carers, on the fact that washing machines do suffer from extra wear and tear and may need to be replaced regularly; 3 event reports contained similar comments. Six consultees, 4 of whom were foster carers, made comments on the wear and tear on cars due to increased usage and this was also mentioned at an event for foster carers.

5.2.25 In addition 13 consultees and reports from 5 events mentioned that other general household appliances also suffer and may need to be repaired or replaced. Four consultees wanted to see some form of budget for replacing items. However, 3 local authorities felt that it would be difficult to ensure consistency or even handedness and 4 thought payment systems could be open to abuse or exploitation. Only 2 consultees felt that the carers should bear the cost of repair and replacement, and this was also mentioned at one event.

"As a carer, this is one of the biggest issues which occurs again and again over the years. The wear and tear on just about all aspects of household appliances, sofas and dining furniture, as well as for many carers the requirement to purchase a second or bigger car is one which is vastly underestimated. Even with fairly generous allowances there is no way that this accommodates all of the above. Since becoming a carer we have had 3 new 3 piece suites and required 2 washing machines replaced - as well as buying a people carrier. This really needs considered. What about looking at things creatively such as allowing carers access to the local authorities car lease scheme, with changes to fuel tax regulations to make them exempt from those types of fuel charges? Or doing a deal on a national level with a car sales company? Big and creative thinking required for this one!" (foster carer)

5.2.26 Commenting on how to assess the extra monies needed, 22 consultees suggested that this would depend on the demands of each particular placement and that finance should be tailored to suit each case; attendees at 3 events agreed. Ten consultees and attendees at 3 foster carer events pointed out that in some cases the problems of a child or young person can lead to destructive behaviour or that even instances of bed wetting can lead to extra wear and tear on items in the home. There were individual reports, from 7 consultees and a mention at one event, of the extra expense they had incurred in repairing or replacing items. The following quote comes from a charity for children in care "Financial support should be available to enable a foster home to be 'established' whether this means purchase of washing machines, beds, safety equipment etc. If the fostering allowance is then expected to cover the repair and replacement of such items, it should be clearly specified and reflected in the allowance paid. There should be due recognition that the wear and tear on household furniture and equipment is often greater than normal in a foster home due to a) the number of children and b) their behaviour, e.g. bedwetting, hyperactivity."

5.2.27 Twelve consultees, mainly voluntary /charity organisations and local authorities, supported a system of discretionary payments; as did reports from 2 events; while 8 consultees felt there should be a payment in the early years of any placement. In a response from a local authority, it was reported that their family placement team workers "did not support this proposal, feeling standard allowances and fees would address this, although there may be exceptional circumstances when a case could be made for supporting such purchases e.g. in the case of particularly destructive children needing care or when the specific needs of a disabled child that might require some additional supports."

5.2.28 The situation of carers faced with adapting or extending their homes, or purchasing adapted vehicles, to cope with placements was seen, by 6 consultees (mainly local authorities and fostering agencies), and attendees at 4 events as another area in which extra finance should be provided. A fostering charity noted "However, the allowance is not designed to, and therefore cannot cover the expenditure on large items such as larger cars, more expensive holidays, home extensions or other one off purchases. These large 'items' should be met by grants available from the local authority."

5.2.29 Some (6) consultees suggested alternatives in the shape of car share schemes or low interest rates for car purchase. One local authority has "a discretionary grant scheme to help carers to buy vehicles to assist in the fostering role." Four consultees commented on the expense incurred by increased running costs. Reports from 4 events also mentioned the need for support to offset increased transport costs. This included 3 mentions of having to purchase car seats and one of the need for a larger vehicle to accommodate car seats.

5.2.30 As an alternative to direct funding, 3 individuals suggested some form of low or interest free loan scheme for carers and this included a foster carer who reported "Interest free or very low interest loans available from a "central pot" which would be repayable. Foster Carers find it very difficult to obtain credit and this would help us be able to have funding for major purchases." Two consultees and attendees at an event for foster carers wanted to see some form of insurance made available to carers. Problems of household insurance claims were mentioned by 2 consultees and at 3 events. Events for foster carers raised the following issues "Insurance not covering malicious damage", "shouldn't have to claim foster carer's insurance e.g. household, car" and "claiming insurance affects no-claims" - should be covered by Council policy".

5.3 REGISTRATION OF FOSTER CARERS

Question 11. Do you think that registration of foster carers would enable them to improve their foster care service?

5.3.1 As shown in chart 5.7, 37 consultees answered yes; 26 answered no, 8 qualified their answer and 40 did not give a definitive response. While there were more consultees in total voicing agreement at this question, more local authorities disagreed than agreed.

Chart 5.7 Whether the registration of foster carers would enable them to improve their foster care service (n=111)

5.3.2 The joint event for kinship and foster carers reported a consensus that foster carers should be registered. At an event for workers in foster care 14 said yes while one said no and at an event for foster carers 36 attendees said yes, only one said no while 2 were undecided.

If you've answered yes, please tell us what improvements could be achieved and what form the registration should take.

5.3.3 The main comment to emerge in relation to registration, from 26 consultees, including 14 local authorities, was that training, development and assessment were the best ways to improve the quality of foster care. This included one local authority commenting that registration "would also raise expectations of accountability and could tie in with standards and requirements, such as the need to complete a portfolio of training and competencies". Reports from 8 events also included similar comments as shown in the following quote from an attendee at an event for foster carers "All foster carers should be registered when the Form F is completed - then additional skills and training should be graded," they continued "This will encourage carers to train and do qualifications especially if there are financial carrots".

5.3.4 Looking at the wider implications of registration, 18 consultees and attendees at 6 events supported a move to increased professionalisation of the foster care service; registration was seen as a step towards this; and some of these comments included support for an independent body to oversee foster carers. At an event for foster care workers an attendee commented "It will make it more professional and accountable and allow it to become a career path." Two consultees, both local authorities, however felt that not everyone would be in favour of increased professionalisation and that carers should not be required to gain qualifications.

5.3.5 The main benefit of registration identified was that of portability. Twelve consultees, including 4 foster carers and 4 other individuals, welcomed the greater flexibility which registration would provide carers wishing to move to a different area, and some commented that this may lead to greater retention of carers; this was mainly mentioned by carers but, unlike other themes at this question, no local authorities made comments on this subject. A fostering agency commented "A national register would not necessarily improve the service but may allow greater movement of carers from agency-to-agency, provided agencies retain the right to assess and approve their carers." There were also comments at 6 events on the potential benefits, and safeguards, of portability. Another benefit identified, by 5 consultees, was that registration would enhance the safety of children or young people in care and this was illustrated by the following quotation from an event for foster carers "Inspections ensure children aren't placed in unsuitable and detrimental environments, particularly if unable to speak for themselves and raise concerns."

5.3.6 Eleven consultees commented that registration already takes place in some form and attendees at 6 events also mentioned existing registration practices. Nine local authority consultees described the current approval and review system as sufficient. Concern was raised, by 3 local authority consultees, over the possibility of duplication of reviews or paperwork should registration be introduced.

"Carers are already registered with local authorities and there would need to be a clear understanding of what the differences and the benefits of SSSC registration would be. It may be that some elements of the SSSC registration could be included in the local authority process, rather than the duplication and additional costs of maintaining two similar registrations." (local authority)

5.3.7 Some (5) consultees felt that registration may act as a barrier to recruitment and retention as did attendees at an event for foster carers. A local authority felt that "The Individual Registration of Foster carers would have a considerable negative impact on the recruitment and registrations of Foster Carers". There were also comments that a requirement to undertake training or to pay for registration may put off potential carers. Eight consultees sought assurances that registration would not cause extra bureaucracy for carers as did attendees at an event for foster care workers "I feel registration of social workers is a waste of time and registration of carers would be worse, another expensive layer of bureaucracy."

5.3.8 Funding featured in responses from 5 consultees with concerns over the cost of the scheme, the costs to carers should they be expected to pay fees or the need to enhance pay for registered carers. A public body noted "However, the cost of doing so may outweigh the benefits of registering, and thereafter inspecting each carer would be very costly. The current cost of registering a child minder is £985 and for subsequent regulation the cost is £659 a year. It is likely that it would be more expensive to regulate foster carers."

"This should be at nil cost to the carer. The reason for the nil cost should be to encourage people to remain on the Register. At the moment there are too many registration bodies asking for large sums for professionals to stay on registers e.g. nurses and teachers and since foster care is not a recognised profession, I do not think it is appropriate that they pay to be registered." (foster carer)

5.3.9 There was some confusion over who would be providing registration; 6 consultees and one event report commented that the consultation document was not clear on this point. There were various suggestions as to who could best provide registration:

• agencies (5 comments and one event);
• local authorities (4 comments and one event);
• the Care Commission (3 comments);
• that registration would provide reassurance for parents (2 comments).

5.3.10 Five local authorities felt it best to register agencies rather than individual carers while 2 wanted to see an assessment of the benefits of the recently introduced system of regulation before deciding.

"The rigour of the fostering panel system should remain with the recommendation to the agency decision maker to approve or not - would this then be extended to determine whether carers should be registered or not? This would keep decision-making close to the carer and at agency level however, registration would allow carer to be recognised nationally." (fostering agency)

5.3.11 Two consultees and attendees at 2 events felt that a registration process similar to that for child minders might be suitable.

5.4 WIDER SUPPORT FOR FOSTER CARERS

Question 12. Regarding the introduction of a national protocol for dealing with and responding to allegations, please tell us about any specific proposals for what this should include.

5.4.1 There were general supporting comments from 29 consultees and from 5 events, some of whom also reported that they already have a system in place for responding to allegations. Twenty-seven consultees and attendees at 5 events stressed the need for independent support and advice, legal assistance or helplines. This was the main comment from foster carers in relation to question 12. A local authority felt "The introduction of a national protocol for dealing with and responding to allegations would be welcome, although there also requires to be a mechanism whereby foster carers can access an independent means of support and representation throughout an investigation."

5.4.2 Shorter investigation periods and a rapid response were stressed by 20 consultees; this was also stressed by many attendees at 8 of the events for workers and foster carers; while 4 consultees felt that the social work service and/or police should implement a first step response to allegations prior to a full investigation. A foster carer stressed "This is so important. There must be a national protocol. At present it is ridiculous that you may have an allegation made against you and that it can take months before it is resolved." while a local authority noted the need for "Speedier resolutions from the legal processes that do not leave careers in limbo for long periods of time."

5.4.3 The need for clear guidelines was highlighted as important by 12 consultees, of which 10 were Local Authorities, and at 2 events. This was seen as particularly important in cases involving the police force. A local authority felt "A definition of 'allegation' would be helpful. Timescales and good practice guidance would be helpful. There needs to be greater clarity over what information (and the status of it) following an investigation is then held on Disclosure (Scotland) forms on carers."

5.4.4 Maintaining the safety of the child or young person was of paramount importance. Twelve consultees, including 6 local authorities, thought that there should be some form of independent support for children and young people; this should include the carer's own children and these comments were echoed at 4 events. Comments from 4 events questioned whether or not it was best to remove all the children in a household immediately. "An allegation shouldn't affect all the children in the foster household, they should only remove the child involved, as this can be detrimental to the other children" (foster carer).

5.4.5 Thirteen consultees felt that remuneration should continue until allegation outcomes are finalised; as did attendees at 3 events for foster carers and one for workers. An individual was "dismayed at the thought of a carer suffering financially whilst an allegation is investigated. I can't think of any Government organisation where this is the case. A doctor or police officer under investigation is generally suspended on full pay pending completion of the investigation. Why should a foster carer be penalised when they may be innocent of the allegation?" Four consultees felt that carers should not be de-registered if an offence has not been proven or that they should be allowed to continue to offer support wherever possible. This view was supported by attendees at 4 foster carer events.

5.4.6 Risk assessments should be employed in cases of possible spurious allegations. A fostering agency suggested "that a risk assessment process for the actual investigation should be considered for spurious allegations not deemed if proven to be of significant harm. Removing a child is not always necessary if the level of allegation would not warrant it. The issue is about expediency of process to minimise risk." Five other consultees made similar suggestions as did a report from a foster carer event; this included the need for these to be conducted by independent external agencies.

5.4.7 Link workers should be available and kept abreast of any developments; 8 consultees felt they should be able to provide up-to-date information to carers as did attendees at 4 events.

5.4.8 "With 1 in 3 likely to be subjected to some kind of allegation, the consultee would like it recognised that foster carers are "At Risk" as no other group are, due to being alone with children for long periods of time, and therefore are a "Vulnerable Group" in this instance and should be allowed an "Independent Silent Witness", at Police Interview, whether or not they have been charged. This could come from an already established source, such as Fostering Network or a local Carers Association." (carer's group). Three consultees commented that foster carers should be considered vulnerable to allegations and treated with respect while one consultee and attendees at an event for foster carers wanted to see a right of appeal for carers. At 5 events, attendees stressed the need to recognise the emotional impact on the carer and other members of the household "the procedures do not address the emotional impact on carers prior to investigation being resolved." (foster care worker)

5.4.9 The need to involve all interested parties in a joined up approach was seen by attendees at one event and by 7 consultees as important in minimising discrepancies and regional variations. Four consultees stressed that only a multi-agency approach would work and there were comments at 3 events and from 2 consultees that the protocol would need to be signed up to by all parties. There were 2 mentions; in one response and from one event; that protocols are useful particularly when different local authorities are working together.

"However, this will only work if this is multi-agency and signed up to by all parties. There needs to be clear guidelines on the time limits for investigations; communication; support and advice for carer. Fostering Network has done a lot of useful work on this and their guidelines are comprehensive. We have had highly complex situations at our Family Placement Service following an allegation where 3 different local authorities were involved, alongside ourselves, all with different procedures. A national protocol would be invaluable in these situations." (charity)

5.4.10 Four consultees mentioned the issue of training to accompany any protocol including one local authority who commented that their recently introduced local protocol "has been well received - this has been launched in conjunction with a training initiative. This focuses on how to deal with allegations and includes staff, carers and carer panel members."

Question13. How should such protocols balance the rights of children and young people to have their allegations properly investigated with the needs of carers for timely and appropriate support and advice? What potential difficulties would there be in developing and implementing such a protocol?

5.4.11 The main issue to emerge at question 13 involved timescales with a carer's group suggesting "There should be timescale rules, as much for the child's right to a speedy decision to the investigation, as the carer's." Responses from 4 events and from 19 consultees indicated that there should be set timescales for investigations and stressed that a quick response was needed in these cases. This was the main comment from local authorities and voluntary /charity organisations in relation to question 13. There were some comments that current investigations can take a long time. Five consultees commented on the problem of delays in cases involving the police or the fiscal and attendees at 2 of the events for foster care workers also voiced concern over delays caused by the legal system.

"Once children are removed from foster placements during the allegation process, it becomes a relatively low priority task for police and procurator fiscal in terms of continuing the investigation towards its final outcome. This means that foster carers and children and young people who have made allegations, remain in some form of limbo until these agencies have come to a point to where they make a decision. This can take months and on occasions, years" (fostering charity)

5.4.12 Thirteen consultees and attendees at 2 events stressed "Any protocol must have as a guiding principle the welfare of the child." (charity) and 4 consultees and a report from a foster care worker event asked that a protocol ensures that the child is kept up-to-date with developments and supported throughout the process.

5.4.13 Support for carers was seen, at 4 events and by 14 consultees, as an important part of any protocol; 4 consultees and attendees at a foster carer event wanted to see carers informed of the nature of the allegations and the progress of the investigation. "When an allegation is made it is important that foster carers have appropriate information about the nature of any allegations and the continued support of their agency." (local authority). Five consultees mentioned the need for support for both parties as did reports from 3 events. Foster care workers at an event, along with 2 consultees, felt that carers should be deemed innocent until the case was proven.

5.4.14 Independent investigation, by skilled practitioners, was important to 8 consultees and was mentioned in 3 event reports and 6 consultees commented that each case is different and, as a charity commented "It should always be the case, however, that the welfare of the child is paramount and credence given to their concerns and a proportionate investigation undertaken."

5.4.15 A clear knowledge of the child's history, including any previous allegations or whether the allegations may be the result of something else in the child's life was seen, by 5 consultees, as useful information which should be considered by the investigating team. A foster carer felt "The history of the child should be taken into account. For example does the child have a history of making false allegations?" Four of the events for foster carers and 2 for foster care workers also mentioned the need to place allegations within the context of a child's history.

5.4.16 A multi-agency approach to investigation was supported by 8 consultees, including a local authority who commented "The only way that this could be fully effective is by multi-agency agreement and effective joint working in line with agreed timescales." This was also mentioned by foster carers at one event.

5.4.17 Both carers and the child or young person have rights and responsibilities; 14 consultees and attendees at an event for foster carers wanted to ensure that both parties were aware of these and that any investigation balanced these rights. In addition, reports from 3 events and a comment from one consultee stressed the need to ensure that the process is clear to all involved. A foster carer at an event commented "Process - good communication - awareness of this by Family Placement Worker /Social Worker, foster carers and others involved in allegation."

5.4.18 Comments at one event stressed that it is "vital to keep accurate and full records" while at another foster carers felt "diaries of the child's behaviour should be kept for future reference, although there are data protection issues regarding this."

Question14. What other information and support do you think would be helpful to carers in carrying out their job?

5.4.19 Across all those responding, levels of support were similar for each potential source of information and support. Table 5.1 shows the range of responses given across sub-groups responding to this consultation. In almost all instances, support for one potential source meant support for all from each consultee. In responding to this series of question, consultees either used the tick boxes provided to indicate support, or made supporting comments. It is not possible to ascertain whether those who did not detail their support for the option did so deliberately as they were against it or merely omitted to answer. Nevertheless the majority of consultees did support each of the options given.

• A support network for children of foster carers (74 consultees ticked this option or made positive comments);
• A support network for foster carers (73 consultees ticked this option or made positive comments);
• A key worker for foster carers (72 consultees ticked this option or made positive comments);
• A regular training programme (76 consultees ticked this option or made positive comments);
• A helpline to contact when problems arise, such as an allegation (70 consultees ticked this option or made positive comments).

Table 5.1 Information and support that would be helpful to carers in carrying out their job

5.4.20 Reports from four of the foster carer events as well as from the kinship and foster carer event indicated support for the 5 options in the consultation document. One further report, from a foster carer event, quantified support. Thirty-six attendees voiced support for a support network for foster carers while 35 attendees indicated support for the other 4 options. The events for kinship carers and for foster care workers did not cover this question.

Anything else (please specify below)

5.4.21 The comment found most frequently in response to question 14 was that some or all of the types of support mentioned already exist; 17 consultees, including 10 local authorities, voiced this opinion and a foster carer said "Many of these things exist at a local level already."

5.4.22 Out of hours support was the most frequently requested type of support, especially from foster carers, with 16 consultees and reports from 3 events for foster carers stressing the need for 24 hour support for carers. A foster carer would like to see "More people manning out of hours, so you can get help through the night in an emergency." Respite leave was mentioned by 9 consultees and attendees at one foster carer event. Buddy systems were noted as being effective in supporting new carers and 7 consultees and, again, attendees at one foster carer event identified these as necessary.

5.4.23 Problems of funding support, especially by smaller local authorities, were identified by 9 consultees with a professional body commenting "Local authorities need to be resourced appropriately to allow for these improvements to develop."

5.4.24 Support from the Fostering Network was important; some of the 10 responses commenting on this included mentions of Foster Talk. One fostering agency "pays a subscription for all carers to Foster Talk which is a carer benefit membership package which provides access to a helpline for advice when problems arise, such as an allegation."

5.4.25 Six consultees along with reports from 2 foster carer events commented on the importance of access to specialist services; at one event legal support was mentioned.

5.4.26 There were other suggestions from smaller numbers of consultees and these included:

• local helplines and support groups (4 comments);
• clarification of complaint and appeals procedures or support during allegations (4 comments);
• online training and support (3 comments);
• focus groups and meetings with professionals (3 comments);
• clear emergency arrangements (3 comments);
• the need to ensure all support is available to kinship carers (3 comments);
• support for placement breakdown (2 comments);
• activities and support for family members, especially the foster carer's own children (2 comments and mentioned at 2 events);
• family group conferences (2 comments);
• employment related entitlements (mentioned at 2 events).

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