The Munro Review of Child Protection

Interim Report: The Childs Journey

Professor Eileen Munro

Itsallaboutrelationships.Wearetalkingaboutdealingwithpeoplewithproblems, withpainfulstuff.Youhavetoknowsomeone,trustthem.Theymustbereliableand bethereforyouifyouaregoingtobeabletotalkaboutthethingsyoudontwant to.Thethingsthatscareyou.Parent

FamilyPerspectivesonsafeguardingandrelationshipswithchildrensservice TheChildrensCommissionerforEngland,June2010

Contents

Acknowledgements Preface ExecutiveSummary ChapterOne:Introduction ChapterTwo:Gettinghelpearly

Whatlevelofhelpisneeded? Thescaleoftheproblem Earlyhelp:understandingneed Earlyhelp:recentpolicyandpracticedevelopments Multiagencylocalityteamswithsocialworkexpertise Conclusion

ChapterThree:Childandfamilysocialwork
Introduction Reasoningandemotions Relationshipbasedpracticewithchildren Evidencebasedpractice Developingexpertise Conclusion

ChapterFour:Managingfrontlinesocialwork
Introduction Managingtime Supervision Professionaldevelopment Tools Procedures Journeyauthorities Themediaandthepublic Monitoringperformance Developmentsinsocialwork ChiefSocialWorker CollegeofSocialWork Conclusion

ChapterFive:Sharedlearningandaccountability
Introduction Complexorganisations Signposting Leadership Accountability Managingperformance Inspection Sectorbasedapproachestoimprovement Multiagencytrainingandlearning Methodsoflearningfrompracticethroughcasereviews SeriousCaseReviews(SCRs) Developingotherkindsofreviewsandlearningactivity Childdeathreviewprocesses RevisingWorkingTogethertoSafeguardChildren(2010) FamilyJusticeReview Conclusion

ChapterSix:Conclusion

AnnexA:AssociationofChiefPoliceOfficersStatementofRisk Principles AnnexB:TowerHamletsDraftRecordForUnderstandingFamilies

Acknowledgements

Iamgratefultoalltheindividualsandorganisations,fromacrossthewholespectrumof childrensservices,whohaveassistedmeinthisreviewofthechildprotectionsystem.I wouldliketoextendmythankstothoseprofessionalgroupswhoparticipatedintherecent roundofvirtualconversations,andtothereadersofCommunityCare.Theirideasand examplesofgoodpracticewillcontinuetoinformthethinkinginthenextphaseofthe review. Specifically,Iwouldliketothank: themembersofmyreferencegroup: o MelanieAdegbite; o DistrictJudgeNickCrichton; o MarionDavis; o AvrilHead; o ProfessorCorinneMayChahal; o LucySofocleous; o DrSheilaShribman; o ProfessorSueWhite;and o MartinNarey. DrDavidLane,anadvisortothereview themembersofmysubgroups:

o EarlyHelp: DrSheilaShribman,AnnGoymer,StephenScott,VivHogg,AndrewCooper, JaneBarlow,RichendaBroad,PaulMcGee,DrCatherinePowell,Nick Hudson,JaniceMcAllister,JoWebber,ColinGreen,SaraGlen. o RulesandGuidance: RachelJones,TrishKearney,JaniceAllister,JanetFyle,FionaSmith,Deborah Hodes,TaraWeeramanthri,FfionDavies,VonniGordon,HelenLincoln. o ChildrenandYoungPeople: AvrilHead,LucySofocleous(andtheOfficeoftheChildrensCommissioner andtheOfficeoftheChildrensRightsDirectorwhohavecollectedand submittedevidencefromchildrenandyoungpeople). o Courts: DistrictJudgeNickCrichton,SimonPickthall,AudreyDamazer. o ICT: ProfessorSueWhite,JackieRafferty,ProfessorDavidWastell,Professor DarrelInce,KayFletcher,DrSuzanneSmith. o LearningfromPractice: ProfessorCharlesVincent,DrPeterSidebotham,DrSheilaFish,ColinGreen, StephenCobb,FrancesOrchover,MarthaCover,JasonGordon. o MediaandPublicConfidence: ProfessorCorinneMayChahal,ProfessorIvorGaber,ProfessorJon Silverman,AmandaCallaghan,KateTonge,AniaRainbird,RichardVize.

o PerformanceandInspection: MarionDavis,EleanorSchooling,RobHutchinson,PaulCurran,Anne Plummer,JohnGoldup,MikePinnock,KarenMarcroft,ProfessorJune Thoburn. theleadsoftheotherindependentreviewscommissionedbytheGovernmentwith whomIhavebeenworkingclosely: o GrahamAllenMP; o RtHonFrankFieldMP; o DavidNorgrove;and o DameClareTickell. thechildrenandyoungpeoplewhohavemetmetotalkabouttheirexperiences organisationsthatmyteamvisitedtolookatexamplesofinnovation, transformationandgoodpracticeinactionaspartoftheprogrammeoffieldwork: o BathandNorthEastSomersetCouncil; o EastBerkshirePrimaryCareTrust; o EastSussexCountyCouncil; o LincolnshireCountyCouncil; o LondonBoroughofHaringey; o LondonBoroughofTowerHamlets; o StaffordshireCountyCouncil; o WarringtonBoroughCouncil;and o WarwickshireCountyCouncil. organisationsthathaveapproachedthereviewandaskedtotrialamoreflexible assessmentprocess: o CumbriaCountyCouncil; o GatesheadMetropolitanBoroughCouncil; o KnowsleyMetropolitanBoroughCouncil; o LondonBoroughofHackney;and o WestminsterCityCouncil. DeborahRamsdale,secondedfromStaffordshireCountyCounciltothereviewteam andtheteamofcivilservantssupportingmeattheDepartmentforEducation(DfE).

Preface

Thisisthesecondreportofthereviewofchildprotection inEnglandcommissionedinJune2010bytheSecretaryof StateforEducation,theRightHonourableMichaelGove MP.Itsthemeisthechildsjourney.Tooofteninrecent history,thechildprotectionsystemhas,inthepursuitof imposedmanagerialtargetsandregulations,forgotten thatitsraisondtreisthewelfareandprotectionofthe child.Thisphaseofthereviewlookedathowthesystem couldbereformedtokeepafocusonthechildsjourney thejourneyfromneedinghelptoreceivingit.Thiscoversanumberofareas, includingworkwithchildrenandfamilieswhohavenotyetmetthethresholdfor childprotection. ThereviewisworkingcloselywithanumberoflocalauthoritiesincludingCumbria, Gateshead,Hackney,KnowsleyandWestminster.Thesefiveauthoritieshaveasked totrialflexibleassessmenttimescales,sothatsocialworkerscanexercisetheir professionaljudgmentmoreeffectivelytoimproveoutcomesforvulnerable children.Iamverygratefultotheseauthoritiesfortriallingthisnewwayofworking and,subjecttotheiragreementtotheconditionsofthetrialwithMinisters,Ilook forwardtoconsideringtheirearlyfindingsintimeforthefinalreport. InthisphaseofworkIhavecontinuedtobesupportedbyanexpertreferencegroup andkeyleadersinthesector,andhavebenefitedfromfieldvisitstoanumberof localauthorities.Ihavealsoconvenedamultiagencyworkinggroupconsisting,so far,ofrepresentativesfromsocialwork,healthandpoliceprofessionalstrategic bodiesinordertoconsiderthefutureofinteragencyrulesandguidance.Inaddition IhavebenefitedfromtheexcellentworkundertakenbyGrahamAllen,FrankField ClareTickellandDavidNorgroveintheirrespectivegovernmentreviews. AsIsaidinmyfirstreportinOctober,Iammindfulofthefactthatthisreviewis takingplaceatatimeoffinancialconstraint,anditiswithinthiscontextthatmy recommendationswillbemade.However,thisreviewofchildprotectionhasbeen fortunateinbeingthefirstnottohavebeeninitiatedinresponsetoaparticular tragedyandmyfinalreportinAprilwillnotseekaseriesofsuperficialquickfixesin asystemascomplexasthechildprotectionsystem,therearenoquickfixestobe had.Thereare,however,barrierstogoodpracticewhichcanberemovedand incentivestobetterpracticewhichcanbeputinplace.Ihopethattheresultwillbe arecalibrationofthewholesystemaroundtheimmediateneedsoftheindividual childrenandfamiliesthatitseekstoserve. ProfessorEileenMunro LondonSchoolofEconomicsandPoliticalScience February2011

Executivesummary
1. TheMunroReviewofchildprotectionispartofanationaldrivetoimprovethe qualityofchildprotectionservices.Theaimofthisreportistosetoutfordiscussion thecharacteristicsofaneffectivechildprotectionsystem,andthereformsthat mighthelptocreatesuchasystem.ThisreportiscalledTheChildsJourney, referringtothechildsjourneyfromneedingtoreceivingeffectiveprotectionfrom abuseandneglect. Thereviewsfirstreportprovidedananalysisoftheunintendedconsequencesof previousreformsthathadariseninthechildprotectionsystem.Itconcludedthat professionalsare,inparticular,constrainedfromkeepingafocusonthechildbythe demandsandrigiditycreatedbyinspectionandregulation.Manyoftheareas identifiedforreformatthisstageofthereviewrelate,therefore,tothesepartsof thesystem. Toencouragechange,thereviewhasbeenworkinginpartnershipwithfive authoritieswhohaverequestedgreaterflexibilitywhenassessingtheneedsof childrenandyoungpeople,withtheaimofdeliveringimprovedoutcomesandmore focusedinterventions.TheSecretaryofStateforEducationisconsideringusinghis powerstoenablethemtomodeltheresponsibleinnovationthisreviewwantsto encourage.Theselocalauthoritieswillbegrantedtemporarysuspensionfrom certainrequirementsinstatutoryguidanceforasixmonthperiod,subjecttotheir agreementwithMinisterstotheconditionsofthetrial. Thereviewendorsesthecrucialrolethatinspectioncanplayinimprovingservices forchildren,andwillbeworkingwithOfstedtodevelopaninspectionprocessthat driveschildcentredpractice,focusesontheeffectivenessofhelpprovidedand assessesthequalityoflearningacrosslocalorganisations,ratherthancompliance withprocess.Theconsensusviewinfeedbacktothereviewhasbeenthat announcedinspectioncarriesaconsiderableamountofbureaucraticburden.The reviewisrecommendingthatannouncedinspectionsshouldendaspartof forthcomingrevisionstotheinspectionframework.Instead,unannounced inspectionsshouldbegivenabroaderremitacrossthecontributionofallchildrens servicestotheprotectionofchildren. SeriousCaseReviews(SCRs)havebeencriticisedforfailingtoidentifyorexplainthe factorsthathavecontributedtopoorpractice.Thereviewisthereforeconsidering adoptingthesystemsapproachusedinthehealthsector,whichexploresthese factorsandthereforeoffersthepotentialfordeeperlessonsandimprovedlearning. ThereviewhasalsoreceivedevidencethatthesystemofexternalevaluationofSCRs hasdistortedtheprioritiesinconductingthesereviews,addingtobureaucracy,and inhibitinglearning.AlongsidetheGovernmentspolicythatSCRoverviewreportsare published,thereviewisrecommendingthatOfstedevaluationsofSCRsshouldend induecourse.Instead,thequalityoflearningmoregenerallyshouldbegivengreater coveragewithintheoverallinspectionprocess.

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WorkingTogethertoSafeguardChildrenisthecoreguidanceformultiagency working.Thedocumentisnow55timeslongerthanitwasin19741.Oneofthe reasonsforthisgrowthhasbeentheinclusionofprofessionaladvicealongside statutoryguidance.Thereviewisworkingwithagroupofrepresentativesfromthe relevantprofessionstoconsiderhowstatutoryguidancecouldbeseparatedout fromprofessionaladvice,withtheprofessionstakingresponsibilityforthelatter.In thenextreportthereviewwillmakerecommendationsonhowthiswouldallowfor statutoryguidancetobecomeashortermanualinwhichthecoreprinciplesand rulesareclearertoallprofessionals. Seniorleadersfromlocalagenciesworktogether,throughtheLocalSafeguarding ChildrenBoard(LSCB),toprovidelocalleadershipandclarityaboutworkingtogether tohelpkeepchildrenandyoungpeoplesafe.LSCBsareuniquelyplacedtotakea holisticapproachtochildprotection.Thereviewismindedtostrengthentheroleof LSCBsinmonitoringtheimpactofpractice,trainingandlearningonthechilds journey,aswellasidentifyingandaddressingemergingproblemsinthesystem. Withtheextentofcurrentpublicservicereform,theroleofleadershipandlinesof accountabilityinchildprotectionservicesneedtobeclear.Thereviewagreeswith LordLamingsconclusionontheneedforastronglocalspineofaccountableleaders, withresponsibilitylocatedinthelocalauthority,asreflectedinthecurrentstatutory framework.Inparticularthereviewconsidersitimportantthatlocalauthorities ensurethattheroleoftheDirectorofChildrensServicescontinuesasthekeypoint ofprofessionalaccountabilityforchildprotectionserviceswithinthelocalauthority andthatthisisnotdilutedorweakened. Localauthoritiesandtheirpartnersneedperformancedatatoknowhowthesystem isfunctioning.TheGovernmenthasannouncedthattheNationalIndicatorSetof performancemeasureswillbereplacedwithasinglecomprehensivelistofdata requiredcentrally.Thereviewisconsideringaminimumdatasetforchildprotection madeupofatwincoreofnationallycollecteddataandrecommendedstandardised localdata.Suchdatacanhelpinformthedevelopmentandevaluationofpolicyby centralGovernmentanddriveimprovementandlearningatalocallevel.Itis importantthatdataallowsthechildsjourneythroughthesystemtobemappedand thatsuchdatainformsdiscussionsaboutlocalpractice,ratherthanbeingusedas absoluteindicatorsofgoodorbadperformance.

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10. Earlyidentificationandprovisionofhelpisinthechildsbestinterestsandmulti agencyserviceswhichdeliversupportforfamiliesarevitalinpromotingchildrens wellbeing.Thereviewendorseseffortstoimprovefamilysupportservicesinthe communitysuchasSureStartChildrensCentresandthehealthvisitorservice,and emphasisgiventothisissuebyFrankField(reportedDec2010),GrahamAllen (reportedJan2011)andClareTickell(Spring2011)intheirrespectivereviews.

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Parton,N (2010) The Increasing Complexity of Working Together to Safeguard Children

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11. Allwhocomeintocontactwithfamilieshaveaparttoplayinidentifyingthose childrenwhoseneedsarenotbeingadequatelymet.Someoftheseneedscanbe helpedbyuniversalandearlyinterventionservices,whileothersmayneedreferral tomorespecialistservices,includingchildrenssocialcare.Evidencesubmittedto thereviewshowsstrongsupportforthecurrentpolicywhere,withthefamilys consent,anassessmentismade,usingaformatcommontoalllocalagencies,that canbesharedasappropriatewithotherprofessionals.Itisimportanttominimise dependencyandempowerfamilies,givingthemownershipoftheirpersonal assessment. 12. Maltreatmentisnotalwaysbeingsafelyidentifiedandrespondedtoappropriately becausesocialworkexpertisemaynotalwaysbereadilyavailabletoother professionals.Thiscontributestoahighlevelofreferralstochildrenssocialcare thataresubsequentlyassessedasinappropriate.Initsfinalphase,thereviewwill considersolutionsdevelopedinsomelocalareas,wheremultiagencyteams,that includesocialworkers,arelocatedinthecommunityalongsideuniversalservices. Theseteamsenablechildrenandyoungpeoplewhoareinneedofprotectionfrom maltreatmenttobemoreaccuratelyidentified. 13. Thereviewisconsideringwhether,whenachildisreferredtochildrenssocialcare, anyexistingassessmentiscontinuedbysocialworkers,ratherthanthecurrent systemwhichstartsanewbureaucraticprocessofinitialandcoreassessments. Currentpracticeisdominatedbyprescribedtimescales,butthereshouldbea strongerawarenessofbalancingthetimelinesswiththequalityofassessment,so thatthespecificneedsofanychildcanbewellassessed.Timelinessmattersbutso doesquality,andlocalarrangementsshouldmonitorboth.Thereviewisworking withtheFamilyJusticeReviewtoexplorehowlocalauthoritiescancontributeto reducingunnecessarydelaysinthechildsjourneythroughthecourtsandcare proceedings. 14. Managersinsocialworkplayacrucialpartincreatingtheworkconditionsthat facilitategoodpractice.Thecurrentmanagementstyleputstoomuchemphasison thebureaucraticaspectsofthework.Radicalreformisneededtogivedueweightto theimportanceofthecognitiveandemotionalrequirementsofthework,theneed forcontinuingprofessionaldevelopment,andforaccesstoresearchinordertohelp workersperformatahighlevel.Thescaleofrulesandproceduresmayhelpachieve aminimumstandardofpractice,butinhibitsthedevelopmentofprofessional expertiseandalienatestheworkforce,thuscontributingtotheseriousproblemsof recruitmentandretention.Thereviewisconsideringhowusercentreddesignof assessmentanddecisionmakingtoolscanprovidebetteraidstoprofessional reasoning.Thereviewisworkinginparticularwithpractitionersonhowthedesign ofIntegratedChildrensSystem(ICS)softwarecanbemademoreuserfriendlyand efficient. 15. Goodsocialworkpracticerequiresformingarelationshipwiththechildandfamily andusingprofessionalreasoningtojudgehowbesttoworkwithparents.The natureofthiscloseengagementmeansthatsupervision,whichprovidesthespace

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forcriticalreflection,isessentialforreducingtheriskoferrorsinprofessionals reasoning.Thereisagrowingbodyofrelevantresearchtosupportprofessionals reasoning.Itisimportantthatsocialworkersmakegooduseofthistomakemore accurateassessmentsandtodifferentiatethoseaspectsofpoorparentingthattend tobecorrelatedwithadverseoutcomesforthechildfromthelessdamagingones. Socialworkersneedtomakebestuseofevidenceonhowtohelpfamilieschange. Thisshouldincludebothevidenceaboutthenatureofeffectiveworking relationships,andofmethodstousewithintheserelationshipstopromotechange. 16. TheSocialWorkReformBoard(SWRB)hasdevelopedacapabilitiesframework whichoutlinesthegenericskillsandknowledgeneededbyasocialworkerat differentstagesintheircareer.Thereviewisbuildingonthisanddraftingthe specialistcapabilitiesneededinchildandfamilysocialwork.TheSWRBhas recommendedthatthecareerstructureshouldbealteredtogivesocialworkersa longtermprofessionalcareerwithoutbecomingamanager.Thereviewis consideringhowthiscouldbedevelopedinchildandfamilysocialwork,toenable thedevelopmentofexpertisethatshouldbeavailabletosupportthefrontline practitioner. 17. Manyprofessionals,inthepast,havereflectedontheclimateoffear,blameand mistrustthatseemstobeendemicwithinthechildprotectionsystem2.Thereis considerableevidencethatthechildprotectionsystemandsocialworkersin particulararestillportrayedverynegativelyinthemedia.Thisunderminespublic confidenceintheprofessionandputschildrenatgreaterrisk.Suchreportingalso hasunintendedconsequencesforthewaythesystemfunctions,forexample,by alteringreferralpatterns,creatingspikesindemand,andincreasingthresholds.The review,workingwiththeCollegeofSocialWork,newlyestablishedonthe recommendationoftheSocialWorkTaskForce,isconsideringhowtohelpthepublic gainabetterunderstandingofthecomplexity,uncertaintyandemotionalchallenge inherentinchildprotection.Thisincludesimprovingtheresponseofthesocialwork professiontopublicdebatesabouttheirwork,especiallyinacrisis,sothatthereisa cleareraccountofprofessionalpractice. 18. Agoodchildprotectionsystemshouldbeconcernedwiththechildsjourneythrough thesystemfromneedingtoreceivinghelp,keepingaclearfocusonchildrensbest intereststhroughout.Thisincludesdevelopingtheexpertiseandtheorganisational environmentthathelpsprofessionalsworkingwithchildren,youngpeopleand familiestoprovidemoreeffectivehelp.Thereviewisconsideringwhether,inlight ofwiderreformofpublicservices,thereisaneedforapanelcomposedofthe relevantprofessionswithinthechildprotectionsystem,toadviseGovernmentand theprofessionsonhowthedifferentpartsofthechildprotectionsystemare interactingandwhetherproblemsareemerging. 19. Thisreviewistakingplaceatatimeofmajorreforminalloftherelevantpublic services,whereseriousfinancialconstraintsarebeingappliedandwithmajor
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Ayre, P. (2001), Child Protection and the Media: lessons from the last three decades, BJSW 31(6), 887-901

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workforceissuesparticularlyinthefieldofsocialwork.Itremainsessentialthatthe protectionofchildrenisaprioritywithinthesereforms.Itisinthiscontextthatthe reviewwillbeseekingthehelpofeachprofessionwithinthesectortodevelopthe reformsproposedinthisreportandworkwitharangeofgroupstodevelopits thinkingbeforeproducingafinalreportandrecommendationstoGovernmentin April.

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ChapterOne:Introduction
1.1TheMunroReviewofChildProtection,PartOne:ASystemsAnalysis3setoutthe currentproblemsinthechildprotectionsystemandofferedananalysisofwhythese problemshadarisen.Itconcludedthatanimbalancehasdevelopedbetweenthe demandsofthemanagementandinspectionprocessesandprofessionalsneedfora workenvironmentandtherightcapabilitiestohelpthemexerciseprofessional judgment,provideeffectivehelp,andkeepaclearfocusonthebestinterestsofthe child.Theaimofthisinterimreportistosetthecharacteristicsofaneffectivechild protectionsystemandtooutlinethereformsthatmighthelpthecurrentsystemget closertotheideal,seekingfeedbackonthisbeforemakingdetailed recommendationstoGovernmentinthefinalreportattheendofApril. 1.2 Providingeffectivehelptochildrenwhoareatriskofabuseorneglecthasboth immediateandlongtermbenefits.Childmaltreatmenthasbeenassociatedwiththe followinglongtermimpacts:

1.3

Figure1.1PreVail,ResearchBrief:InterventionstoPreventChildMaltreatment (March2010)4 TheUnitedNationsConventionontheRightsoftheChild(UNCRC)providesachild centredframeworkthatspellsoutthebasichumanrightsthatchildreneverywhere have:therighttosurvival;todeveloptothefullest;toprotectionfromharmful influences,abuseandexploitation;andtoparticipatefullyinfamily,culturaland sociallife.ThefourcoreprinciplesoftheConventionarenondiscrimination; devotiontothebestinterestsofthechild;therighttolife,survivaland development;andrespectfortheviewsofthechild5.Thevisionofchildrenimplicit intheUNCRCandintheChildrenAct1989isthatchildrenareneithertheproperty
Munro,E.(2010).TheMunroReviewofChildProtectionPartOne:ASystemsAnalysis,retrieved fromhttp://www.education.gov.uk/munroreview/downloads/TheMunroReviewofChildProtection Part%20one.pdf 4 http://prevail.fims.uwo.ca/docs/CM%20Research%20Brief%20Mar10.pdf 5 http://www2.ohchr.org/english/law/crc.htm
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oftheirparentsnorhelplessobjectsofcharity.Theyareindividuals,membersofa familyandacommunity,withrightsandresponsibilitiesappropriatetotheirstageof development. Thechildprotectionsystemcouldbetakentoreferspecificallytothereactive serviceofidentifyingincidencesofmaltreatmentandpreventingtheirrecurrence. However,astheUNCRCmakesclear,thechildsrighttoprotectionfrom maltreatmentplacesadutyontheStatenotjusttoreacttoincidentsof maltreatmentbuttoprovidesupporttofamiliestoreducetheincidence.Article19 oftheUNCRC: 1.StatesPartiesshalltakeallappropriatelegislative,administrative,socialand educationalmeasurestoprotectthechildfromallformsofphysicalormental violence,injuryorabuse,neglectornegligenttreatment,maltreatmentor exploitation,includingsexualabuse,whileinthecareofparent(s),legal guardian(s)oranyotherpersonwhohasthecareofthechild. 2.Suchprotectivemeasuresshould,asappropriate,includeeffective proceduresfortheestablishmentofsocialprogrammestoprovidenecessary supportforthechildandforthosewhohavethecareofthechild,aswellasfor otherformsofpreventionandforidentification,reporting,referral, investigation,treatmentandfollowupofinstancesofchildmaltreatment describedheretofore,and,asappropriate,forjudicialinvolvement.

1.5

Childcentred:ThisreportisentitledTheChildsJourney,meaningthechilds journeyfromneedingtoreceivingeffectivehelpforproblemsarisingfromfamily andsocialcircumstances.Evidencepresentedtothereviewshowsthatthesystem doesnotcurrentlystaychildcentred.Whilemanyprofessionalsmakestrenuous effortstokeepafocusonthechildandmanychildrenpraisethehelptheyhave receivedthereareaspectsofthecurrentsystemthatpushpractitionersinto prioritisingotheraspectsoftheirwork.Assetoutinthisreviewsfirstreport6: Itmayseemselfevidentthatchildrenandyoungpeoplearethefocusofchild protectionservicesbutmanyofthecriticismsofcurrentpracticesuggest otherwise.Inasystemthathasbecomeoverbureaucratisedandfocusedon meetingtargetswhichreducethecapacityofsocialworkerstospendtimewith childrenandyoungpeopleanddevelopmeaningfulrelationshipswiththem, thereisariskthattheywillbedeprivedofthecareandrespectthatthey deserve.Thechildrenandyoungpeoplewhohavecontributedsofartothe reviewconfirmthattheydonotfeelasthoughtheyarecentrallyimportantand heldinmindbytheirsocialworker: IwasneveraskedabouthowIfeltorwhatIwantedtohappen.Askingme10 minutesbeforethemeetingisnotthesame Youngpersonspeakingtothereview
Munro,E.(2010).TheMunroReviewofChildProtectionPartOne:ASystemsAnalysis,retrieved fromhttp://www.education.gov.uk/munroreview/downloads/TheMunroReviewofChildProtection Part%20one.pdf
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AnchoringthereviewintheconceptofthechildsjourneyandtheUNCRChelpsto keepaclearfocusonwhetherthereviewsreformsarelikelytohaveabeneficial impactonthesafetyandwellbeingofchildren.Itprovidesastructurewhen thinkingaboutthedesignofaneffectivechildprotectionsystem.Whatdochildren needfromachildprotectionsystem?Whatdotheyneedfrontlinepractitionersto beabletodo?Howshouldpractitionersbemanagedinordertoprovidethis?How shouldservicesbeinspectedtocheckthatthisisbeingachieved?Anysuggested reformshouldhaveaclearlinktotheimpactonthewellbeingandsafetyof children.

1.7 Thereisalsoanimportantgroupofchildrenwhoarethesubjectofachildprotection enquiryandwheremaltreatmentisnotfound.Forthesefamilies,theexperience rangesfromunpleasanttohighlytraumatic,sometimesleavingthemwithafearof askingforhelpinthefuture.Inthefirstreport,itwasnotedthatthemoreany systemtriestoavoidmissingacaseofmaltreatmentthenthemorenonabusive familieswillbedrawnintothenetofchildprotectioninquiries.Itisimportantto rememberthatthesearchforaccuracycomeswithahumancostthatisbornebya childandparentsandsothesystemneedstopayattentiontotheimpactoftheir serviceinvolvementonchildrenwho,itislaterconcluded,arenotatriskof significantharm. 1.8 Earlyhelp:Thesequenceofthechaptersinthisreportfollowsthechildsjourney. Fromachildspointofview,theidealiswherefamily,friends,community,and universalservicesprovideallthatisrequired,andthisistheexperienceformost childreninEngland.Thesecondbestisthatanyemergingproblemsareidentified quicklyandaddressed.Chaptertwodiscussestheimportanceofprimaryand secondarylevelsofpreventiveservices,servicesthatsupportfamiliessothat problemsdonotariseoraredealtwithspeedilywhilestillatalowlevel.Supporting familiesisamultiagency,multiprofessionalresponsibility.Allhaveaparttoplayin identifyingchildrenwhoseneedsarenotbeingadequatelymet,sometimesbecause ofparentalabuseorneglect. 1.9 Therearethreeotherreviews,commissionedtoconsideraspectsofearlyprovision ofhelpforchildren,whicharerelevanthere.Theirrecommendationswillbetaken intoaccountinthisreview: theIndependentReviewonPovertyandLifeChancesledbyFrankFieldMP reportedinDecember20107recommendingactionsrequiredbygovernment andotherinstitutionstoreducepovertyandenhancelifechancesforthe mostdisadvantaged.Thefinalreportsetoutanewapproachtomeetingthe Governmentstargetforabolishingchildpoverty,inparticularforthe inclusionofnonfinancialelements;

Field,F.(2010),FoundationYears:preventingpoorchildrenbecomingpooradults(availableonlineat http://povertyreview.independent.gov.uk/)

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theindependentcommissionintoearlyinterventionledbyGrahamAllenMP presentedtheirfirstreportinJanuary2011.Thereportidentified19 programmesthathaveaproveneffectivenessinhelpingchildrenandyoung peopletofulfilltheirpotentialandhelpbreakintergenerationaltransfersof disadvantageandunderachievement8;and areviewoftheEarlyYearsFoundationStage(EYFS)isbeingundertakenby DameClareTickellwhoiscarryingoutareviewoftheEYFSsothatitisless bureaucraticandmorefocusedonyoungchildrenslearningand development9.

1.10

Forthisreview,akeyconcernistheproblemofidentifyingthosechildren,receiving earlyinterventionservices,whoaresuffering,orarelikelytosuffer,significantharm andneedadifferentlevelofresponse. Childandfamilysocialwork:Chapterthreebeginsbyconsideringwhatexpertise childrenneedsocialworkerstohave.ItbuildsontheworkoftheSocialWorkTask ForceandtheSocialWorkReformBoardtooutlinetheskills,knowledgeandvalues needed. Whenlookingatwaystoreducebureaucraticdemandsonsocialworkers considerationneedstobegiventowhythesedemandswereintroducedand whetherthosereasonsstillholdtrue.Thereseemtohavebeentwomaindriving forcesbehindtheproliferationofprescriptionanddocumentation:improvingsocial workpracticeandincreasingtransparencyandaccountability.Bothissuescontinue tomatter,soanyreformsneedtotrytoachievethesamegoalsbutbydifferent means.Theformerissueiscoveredinchaptersthreeandfourwhilethelattertopic oftransparencyandaccountabilityisdealtwithinchaptersfourandfivewhen discussingmanagerialoversightandinspection. Managingfrontlinesocialwork:Thefirstreportconcludedthatthemanagementof childrenssocialcarehadevolvedtoofarintoatopdown,compliancedriven organisation.Thisstifledcreativityanddistortedpriorities,withmoreattention giventothecompletionofbureaucratictaskstospecifiedtimescalesasthemeasure ofsuccess,thantheappraisalofthequalityofhelpreceivedbychildrenandtheir families.Chapterfourconsidershowchildrenssocialcareorganisationsneedto movetowardsbeingadaptive,learningorganisationsthatkeepaclearfocuson creatingtheworkenvironmentthathelpsfrontlinesocialworkershavetheskills, timeandresourcestovisitfamilies,engagewiththem,developagood understandingoftheirproblemsandprovideeffectivehelp. Accountabilities:Chapterfivesmultiagency,multiprofessionalfocusstartsby
Allen,G.(2011),EarlyIntervention:thenextsteps(availableonlineat http://media.education.gov.uk/assets/files/pdf/g/graham%20allens%20review%20of%20early%20int ervention.pdf) 9 Launchnoticeavailableonlineat http://www.education.gov.uk/inthenews/inthenews/a0061485/reviewofearlyyearsfoundation stage
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discussingtheroleofLocalSafeguardingChildrenBoards(LSCBs)inmonitoringhow welllocalservicesaresafeguardingchildren.Italsoreemphasisestheimportanceof localleadersintheregularenquiryoftheimpactoftheirhelplocallyonchildrenand youngpeopleandbeginstoconsiderhowinspectioncandrivealearningculture. LSCBsarerequiredtoconductaSeriousCaseReviewwhenachilddiesorisseriously injuredandabuseorneglectisthoughttobeacontributoryfactor.Thechapter exploreswhetherthesystemsapproachusedinthehealthsectoroffersabetter modelforlearning. 1.14 Assessmentandtimescales:Inthespiritoffosteringalearningandadaptiveculture withinlocalchildprotectionsystems,thereviewhasengagedwithanumberoflocal authorities,inordertounderstandthechallengestheyface.Thereviewteamhas beenworkinginpartnershipwithfiveauthoritieswhohaverequestedgreater flexibilitywhenassessingtheneedsofchildrenandyoungpeople,withtheaimof deliveringimprovedoutcomesandmorefocusedinterventions.Theselocal authoritieswillbegrantedtemporarysuspensionfromcertainrequirementsin statutoryguidanceforasixmonthperiod,subjecttotheiragreementwithMinisters totheconditionsofthetrial.Thetrialswillbeginshortlyandrununtiltheendof July.Theearlyresultswillinformthinkingforthefinalreportofthereview(see chapterfourfordetails). Thehypothesisisthat,whilsttimescalesandfixedstagesofassessmentprovide somecontrolofthechildprotectionsystem(forexamplebypreventingdriftand controllingdemand),theycandosoattheexpenseofthoughtfulsocialwork practice.Itispossiblethatadifferentapproachtolocalmanagementandleadership couldmitigatethesenegativetendencies.Itshouldbepossibletoprovide thoughtfulassessmentandtimelydecisionmakingwithouttheneedforfalse assessmentdistinctionsandtimescaleswhichseektooverstandardisethemany variedandcomplexneedsofvulnerablechildren. Theissueoftimescalesisoneelementofabroaderthemethatpermeatesthe review:theproblemoffindingabalancebetweenprescriptiverulesandprofessional judgmentbasedonexpertise.Targetsandperformanceindicatorsarecriticisedas implicitlycreatingarule,i.e.meetingthatindicatorisautomaticallyanindicationof goodpractice,regardlessofwhetheritisinthebestinterestsofthechild.In reality,becauseofthediversityofchildrensneedsandcircumstances,thedata needstobeinterrogatedtoseewhatpracticehasproducedthisresultandwhether itwasbeneficialforthechildornot.Inasimilarway,theexpansionofprocedures andprescriptiveguidanceisfaultedforoverstandardisingpracticeandundervaluing theskillsrequiredtoapplyprinciplesindiversecircumstances. Rulesandjudgment:Whilstsomerulesandprescriptionwillalwaysbenecessary notleasttoenablepeoplefromdifferentagenciestocoordinatetheirworkthey havecometobeseenasawayofmakingquickimprovementsinapoorservice, withoutneedinglengthytrainingtoexplaintothemultiagencyworkforcewhythey matter.Inthelongterm,improvementinthequalityoftheserviceprovidedto children,youngpeopleandfamilies(thequalityofthejourney)restsonhavinga

1.15

1.16

1.17

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welltrained,wellsupportedworkforcethatunderstandstheunderlyingprinciplesof childprotectionandhasthespacetoassesshowbesttoapplythem.

1.18

Theprinciplesofchildprotection
Initsfinalphase,thereviewwillconsiderhowbesttoframetheseprincipleswhich underpinastrongchildprotectionsystem.Thefollowinglistisaninitialdraftfor consideration: thefamilyisthebestplaceforbringingupchildrenandyoungpeople,butthe childprotectionsystemfacesdifficultjudgmentsinbalancingtherightofa childtobewiththeirbirthfamilywiththeirrightforprotectionfromabuse andneglect; thechildprotectionsystemisamultiprofessional,multiagencyoperation requiringallwhoworkwithchildren,youngpeopleandfamiliestoconsider theeffectivenessoftheirwork; thechildprotectionsystemshouldbechildcentred,recognisingchildrenand youngpeopleasindividualswithrights,includingtheirrighttoparticipation inmajordecisionsaboutthem,inlinewiththeirevolvingcapacities; thechildprotectionsystemunderstandsitsdualmandatetosupportfamilies andhelpthemprovideadequatecareandtointerveneauthoritativelywhen childrenandyoungpeopleneedprotection; thegeneralpublicandallwhoworkwithchildren,youngpeople,familiesand carershavearesponsibilityforprotectingchildrenandyoungpeople; helpingfamiliesinvolvesworkingwiththemandthereforethequalityofthe relationshipbetweenthefamilyandprofessionalsdirectlyimpactsonthe effectivenessofhelpgiven; childrensneedsandcircumstancesarevariedandsothechildprotection systemrequiressufficientflexibility,withspaceforprofessionaljudgmentto meetthatvarietyofneed; thecomplexityoftheworldmeansthatuncertaintyandriskarefeaturesof childprotectionworkandthatriskmanagementcannoteliminateharm,only reduceitsoccurrence; alearningandadaptivesystemischaracterisedbyregularquestioningofhow thesystem(locallyandnationally)isfunctioningandwhetherchildrenare receivingeffectivehelp;and goodprofessionalpracticeisdrivenbyknowledgeofthelatesttheoryand research.

Itisvitaltoo,thatanyprinciplesthatseektosupportchildprotectionaremindfulof theinherentriskanduncertaintyinprotectingchildrenandyoungpeoplefrom harm.Inthisarea,thereviewhasbeenparticularlyimpressedbytheriskprinciples developedbytheAssociationofChiefPoliceOfficers(ACPO),andisconsideringways inwhichtheycouldbeincorporatedintochildprotectionwork(seeAnnexA).

20

Nextsteps
1.19 Thefinalphaseofthereviewwillproposehowthecurrentsystemcanbeadjusted sothat,overtime,itbetterreflectstheneedsofchildrenandyoungpeople.Asthe reviewdevelopsdetailedrecommendationstoGovernmentineachoftheseareasit willworkverycloselywithstakeholdersandchildprotectionprofessionalsinorder tothinkclearlyabouttheimplicationsofimplementation,beforemaking recommendationstoMinistersbytheendofApril. Thisisanopportunitynottosettherightsysteminstone,buttobuildanadaptive, learningsystemwhichcanevolveasneedsandconditionschange.Itisonlyby seekingwellbalancedflexibilitythatthesystemcanhopetoretainitsfocuson helpingchildrenandfamilies,ratherthansimplycomingtoserveitsown bureaucraticends.

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ChapterTwo:Gettinghelpearly
Nochildsfutureshouldbepredeterminedbythedecisionsormistakesofhis orherparents,andIfirmlybelieveeverychildshouldhavethechanceto succeed,regardlessoftheirbackground.Interveningearlierwithtroubled familiescannotonlypreventchildrenandtheirparentsfallingintoacycleof deprivation,antisocialbehaviourandpovertybutcansavethousandsifnot millionsofpoundsinthelongerterm10. 2.1 Theearlier,thebetter:Fromachildoryoungpersonspointofview,theearlier helpisreceived,thebetter.Researchonchildrensdevelopmentalsoemphasises theimportanceoftheearlyyearsontheirlongtermoutcomes.Thischapter, therefore,discussesthecurrentpoliciesofpreventionandearlyintervention,but hasaspecificfocusonidentifyingthosechildrenwhoaresuffering,orarelikelyto suffer,significantharmasaresultofmaltreatment.Itbeginsbydescribingthelevels ofpreventionthatcanbeofferedtochildrenandfamiliesbeforediscussingthescale oftheproblem,adiscussionthatrevealshowmuchunmetneedforprotectionthere is.Themeritsofprimaryandsecondarypreventiveservicesarealsocovered,asis theproblemofhowtoidentifythechildrenwithinthoseserviceswhoaresuffering orarelikelytosuffersignificantharm.Evidencesubmittedtothereviewsuggests thatoneconstructivewayofdealingwiththisproblemiscreatingmultiagency teamsinthecommunitythathaveanexperiencedsocialworkeramongother professionalssothatmoreinformedappraisalsofsignsofconcerncanbemade. Engagingfamilies:Thereisatensioninprovidingsupporttoparents.Formost,the rightapproachistoofferserviceswithfamiliesmakingavoluntarychoicetoreceive them.Therearefamilieswhoselevelofparentingraisessomeconcernandthe relevantservicesmakemorestrenuouseffortstomakethemawareofthehelp availableandtogaintheircooperation.Therearealsofamilieswhoseparenting raisesseriousconcern,anditmaybenecessarytotakeamorecoerciveapproach.It istheproblemofdecidingwhentoescalatethelevelofprofessionalinvolvement thatisoneofthemainconcernsofthisreview:identifyingthosechildren,receiving earlyinterventionservices,whoaresuffering,orarelikelytosuffer,significantharm andneedadifferentlevelofresponseisthedilemmaprofessionalsface.A complicatingfactoristhatparentswhovoluntarilyengagewithsupportservices tendtomakemoreprogresswhileamorecoerciveapproachcandeteriorateintoan adversarialrelationshipwhichblocksprogress.Therefore,movingupthescaleof intrusivenesscarriesbothgainsandlossesandsocreatesacomplexdecision. Helping:Thereviewusesthetermhelpratherthanthemorecommonlyusedterm interventionindescribingprofessionalservicesbecausehelpcarriesastronger connotationofworkingwithfamiliesandsupportingtheiraimsandeffortsto change.Inthefirstreport,itwasstressedthatsuccessinhumanservicesisthe resultofthejointeffortsoftheprofessionalandtheserviceuser:allpublicservices
MinsterofState,SarahTeatherMP,onlaunchingtheGrahamAllenreviewonEarlyIntervention, http://www.dwp.gov.uk/newsroom/pressreleases/2010/july2010/dwp09710280710.shtml
10

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requirethecustomertobeanactiveagentintheproductionofthedesired outcomes11.Itisimportant,however,tostressthatusingthetermhelp,doesnot takeawayfromthefactthatchildprotectionworkrequiresauthoritativeand,at times,coerciveactiontoprotectchildrenandyoungpeople. 2.4 Currentpolicy:Evidencesubmittedtothereviewshowsthatthereisstrongsupport forthecurrentpolicyofbuildingupearlysupportserviceswhichfocusinvestment ontacklingemergingproblems.Thereisalsoaconsiderablebodyofevidencethat interveningearlycansavemoneybyavoidingmorecostlyinterventions(see,for example,theworkofGrahamAllen,mentionedbelow).Manysuchapproaches alreadyexist,suchashealthvisitingservices(forwhichthereisaplannedexpansion programme)andSureStartChildrensCentreswhicharecurrentlybeingreformed withanincreasedfocusonearlyinterventionsupportforthefamiliesingreatest needandgreaterinvolvementofvoluntaryandcommunityorganisationswitha trackrecordofsupportingfamilies. Supervisedvolunteershavearoletoplayasanaidtotheearlysupportworkforcefor children,youngpeople,theirfamiliesandcarers,offeringflexiblehelp.Forexample, throughanetworkofover16,000trainedparentvolunteers,HomeStartsupports parentswhoarestrugglingtocope.Trainedvolunteerstrytohelpbuildthe resilienceandemotionalstrengthoffamilies.Almost25%offamiliestheyhelp referredthemselvestotheservice12.Inaddition,thereisalongtraditionofchildren andtheirfamiliesdrawingonsupportfromarangeofsourcesoutsideofthestate, fromcorefrontlineservicesprovidedbysomeofEnglandslargestcharitiesto groupsoflocalvolunteersassistingsocialcaretoenhancetheserviceitprovides. Thesignificanceofpreventionandearlyprovisionofhelpisreinforcedbythefact thatweknowfarmoreabouthowtopreventtheprimaryoccurrenceof maltreatmentthanhowtorespondeffectivelyoncemaltreatmenthasoccurred13. AstheAllenReviewargues,thisstrengthensthecaseforhavingselectiveprimary preventionprogrammesofferedtofamiliesinhighriskgroups14. Itisalsoimportantnottoseeallfamiliesasproblematic.Themajorityoffamilies usesupportfromwithinthefamily,friends,communitiesanduniversalservicesin raisingchildren.Thebasicsofabigsocietyarealreadyinplace. Inusingresearchevidenceaboutcorrelationsbetweenchildhoodfactorsandlater outcomes,itisimportantnottoassumeasimpledeterminismattheindividuallevel. Researchcanidentifygroupswithinwhichtherewillbeahigherthanaverage numberofindividualswhohaveproblemslaterbutsomeinthegroupwillnot. Studiesofsiblingswhohavesufferedmaltreatmentrevealhowvariedtheirlife
Chapman,J.(2004)SystemFailure;whyGovernmentsMustLearntoThinkDifferently,Demos www.homestart.org.uk 13 Macmillan,H.etal(2009),Interventionstopreventchildmaltreatmentandassociated impairment,TheLancet,Volume373,pp250266 14 Allen,G.(2011),EarlyIntervention:thenextsteps,chapter3(availableonlineat http://media.education.gov.uk/assets/files/pdf/g/graham%20allens%20review%20of%20early%20int ervention.pdf)
12 11

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coursemaybe15.Thisbodyofresearchisimportantnotonlybecauseitunderscores theneedtoavoidfatalism,assumingthataspecificchildisgoingtobeproblematic, butalsobecauseitdrawsattentiontotheimportanceofresiliencefactorsthathelp childrencounteradverseexperiences.

Whatlevelofhelpisneeded?
2.9 Whenaneedforhelpisidentified,childrenneedprofessionalstomakeagood assessmentthatleadstotherightlevelofresponsetotheirneeds.Itiseasytooffer adefinitionofwhichfamiliesorproblemscanbehelpedthrougharangeof preventiveservicesbut,inpractice,therearemanydifficultiesinassigningfamilies toappropriateservicesthatmeettheirneeds. Thestandardcategoriesofpreventionare: universalprimarypreventionaddressingtheentirepopulationandaiming toreducethelaterincidenceofproblems,e.g.theuniversalservicesof health,education, selectiveprimarypreventionfocusingongroupswhichresearchhas indicatedareathigherthanaverageriskofdevelopingproblems.Manyof theinterventionsrecommendedinGrahamAllensreviewfallintothis category,e.g.offeringadditionalsupportservicestosingle,teenagemothers; secondarypreventionaimingtorespondquicklywhenlowlevelproblems ariseinordertopreventthemgettingworse.Thisareaofmultiagencywork hasbeenthesubjectofpolicydevelopmentsincetherefocusingdebatein 199516andEveryChildMattersin2003; tertiaryhelp/preventioninvolvingaresponsewhentheproblemhas becomeserious,e.g.childprotection,hospitalcare,criminaljustice;and quarternaryhelp/preventionprovidingtherapytovictimssothattheydo notsufferlongtermharm,e.g.therapyforvictimsofsexualabuseor therapeutichelpforlookedafterchildren.

2.10

2.11

Thisreviewisremittedtoreformthechildprotectionsystemwhichfallsintothe tertiaryandquaternarylevels:theserviceofferedtofamilieswhenthereare significantproblemsinthecareofchildrenandyoungpeopleandtheyarethought tobesuffering,orarelikelytosuffer,significantharm.Whenweconsiderthisfrom theperspectiveofthejourneyofthechildfromneedingtoreceivinghelpweare inevitablyinterestedintheearlystagesofchildmaltreatmentandtheservices providedatbothprimaryandsecondarylevelsofpreventiontoreducethenumber ofchildrenwhosufferseriousmaltreatment. However,thelinkbetweenthelevelsofservicesisnotclearcut.Assessingchildren andfamiliesandassigningthemtotherightleveloftherighttypeofserviceisa difficulttask.Thereareparticularchallengesinvolvedinassessingwhetherchildren
Bifulco,A.(2008),RiskandresilienceinyoungLondonersinTreatingtraumatisedchildren:Risk, resilienceandrecovery,ed.Brom,D.,PatHorenczyk,R.,&Ford,J. 16 ChildProtection.MessagesfromResearch(1995)HMSOISBN01103217811
15

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aresuffering,orarelikelytosuffer,significantharm.Statutoryguidancetellsthose workingwithfamiliestorefersuchchildrentosocialcare,butmakingthisdecisionis notstraightforward.Maltreatmentrarelypresentswithaclear,unequivocalpicture. Ingeneral,itisthetotalityofinformation,theoverallpatternofthechildsstory, thatraisessuspicionsofpossibleabuseorneglect. 2.13 Secondarypreventiveservicesseektoidentifyfamilieswithfirstsignsofproblems, buttheymayfitseveralcategoriesanditisnoteasyforworkerstoknowwhichis which.Thepresentingsignsmaybefirstsignsthatarelowlevelandare appropriatelydealtwithbyearlyinterventionservices.Theymay,however,befirst signsthatsuggestseriousmaltreatmentthefirstsignmaybeafracturedskullina baby. However,themostproblematicgrouparethosewherethefirstsignslooklowlevel buttheyarereallythetipofanicebergandthechildisactuallybeingseriously harmed.So,togivearealexample,asupportworkermayvisitahomeandbetold thatonechildisvisitinghisgrandmother.Shecanseethathisbrotherandsisterare wellcaredfor.Beingtoldthatachildisvisitingagrandparentdoesnot,onitsown, ringalarmbells.Ifthatchildcontinuestobeoutofsightonfuturevisitsaswell,then therecomesapointwhenthesupportworkershouldbecomesuspicious,though thisrequiresjudgment.Thereisnosimplerule.Inoneformofmaltreatment, parentsscapegoataparticularchildandtakegoodcareoftheothers.Inthiscase, theabsentchildwas,infact,lockedinabedroomstarving. Thislastpossibility,thatthepresentingproblemthoughlowlevelinitself,maybe thesurfaceevidenceofadeeperproblemreceivesmoreattentionwhentherehas beenamajorchilddeathstoryinthemedia.Workersoftenthenmakemore referralstochildrenssocialcareincase,onfurtherinvestigation,thechildisfound tobesufferingsignificantharm.AfterthedeathofPeterConnellyandthe associatedpublicityinwhichprofessionalswerecastigatedforfailingtoseehewas beingmaltreated,therewasanaverage11%riseinreferralsintheyearthat followedandthishassustainedsincewithfiguresfor200910showinga10.4% increaseonthepreviousyear17.Forsomelocalauthorities,therisehasbeenhigher thantheaverage. Puttingmorefamiliesintothesocialcarecategoryisproblematicintwomainways. Oneoftheproblemsisahighlevelofreferralsthat,oncloserexamination,arenot deemedtoneedaservice.Thismeansthatchildrenandfamiliesgothrougha stressfulprocessfornobenefitandsocialcareservicesareoverwhelmedin searchingthroughthereferralsforthosecaseswherechildrenaresuffering,orare likelytosuffer,significantharm.Theirabilitytoprovideeffectivehelptothemost seriouscasesisreducedbecausesomuchresourceisdevotedtodealingwiththe influxandprioritisingcases.Whilesomeofthesefamiliesneedthatcloser examinationtomakeaninformedjudgmentaboutachildssafetyandwelfare,itis
17DfE:ChildrenInNeedinEngland,includingtheircharacteristicsandfurtherinformationon childrenwhowerethesubjectofachildprotectionplan(200910ChildreninNeedcensus,Final): http://www.education.gov.uk/rsgateway/DB/STR/d000970/index.shtml.

2.14

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clearfromthebigvariationsinreferralratesaroundthecountrythatthereis considerablescopeforhelpingpeopleworkinginprimaryandsecondarylevel servicestomakefewer,moreappropriatereferrals.Ifthiscanbeachieved,then familieswillexperiencefewerunproductivereferralstochildrenssocialcareandthe caseloadsinchildrenssocialcarewillbecomemoremanageable,andsohelpto createtheconditionsinwhichhelpcanbeprovidedandamoreeffectiveserviceto childrenandfamiliescanbeconstructed.

Thescaleoftheproblem
2.17 For200910,DepartmentforEducationfiguresreportthat18: 603,700referralsweremadetochildrenssocialcareservices,anincreaseof 56,700(10%)fromthe200809figuresandan11%increasefrom200607; 395,300initialassessmentswerecompletedwithintheyear(65.5%ofthe totalreferralsintheyear),anincreaseof46,300(13%)fromthe200809 figuresanda30%increasefrom200607; 137,600coreassessmentswerecompletedwithintheyear(22.8%ofthe totalreferred),anincreaseof17,000(14%)fromthe200809figuresand47% iftakenoverthethreeyearperiod,200710; 39,100childrenweresubjecttoachildprotectionplanat31March2010,an increaseof5,000(15%)fromthe200809figures.Themostcommonreason forachildtobeplacedonachildprotectionplanwasneglect(43.5%); theChildreninNeedCensusreportedthat377,600childreninEngland startedanepisodeofneed19in200910and694,000wereinneedatsome pointintheyear; on31March2010therewere375,900childreninneedinEnglandwhich equatesto341.3childreninneedper10,000childrenunder18years;and themostcommonreasonforachildtobeassessedasinneed,for39.4%of allcases,wasabuseorneglect.

2.18

Thefiguresaboveindicatethatintheyear200910about3.14%ofthepopulation ofchildrenandyoungpeople,wereregardedaschildreninneed,butonly0.32% werethesubjectofchildprotectionplans(i.e.substantiatedcasesofabuse). Withthislevelofunmetneed,thecontributionofuniversalservicesandservices targetedonhighriskgroupsisevenmoreimportant,sincetheymayreachchildren whosemaltreatmenthasnotyetbeenbroughttotheattentionofchildrenssocial care,orwhosesituationdoesnotmeetthethresholdforstatutoryintervention.By

2.19

18DfE:ChildrenInNeedinEngland,includingtheircharacteristicsandfurtherinformationon childrenwhowerethesubjectofachildprotectionplan(200910ChildreninNeedcensus,Final): http://www.education.gov.uk/rsgateway/DB/STR/d000970/index.shtml. 19 ChildrenAct1989,S17achildinneedisdefinedasachildrequiringadditionalsupportfromalocal authority,ifheorsheisunlikelytoachieveormaintain,orhavetheopportunityofachievingor maintainingareasonablestandardofhealthanddevelopmentwithoutsupport,ifhisorher developmentislikelytobesignificantlyimpaired,withoutsupportand/orifheorsheisdisabled.

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reachingthesefamiliesearly,primaryandsecondarylevelservicescanreducethe numberofchildrenwhomightotherwiselatersuffersignificantharm. 2.20 Therearenationalstatisticsavailableabouttheprevalenceofactualorpotentially harmfulcircumstancesinwhichchildrenarelivingandlocalareashavethetask(and statutorydutyinthecaseoftheJointStrategicNeedsAssessment)ofbuildingupa profileoftheirownlocalneed,thathelpsprofessionalsunderstandthepotential varietyofresponsesthatmayberequiredintheirareaandtocommission appropriateandrelevantservices.Domesticviolenceisasignificantissuelinkedto childprotection,anditsprevalencemaybevariedindifferentlocalities.Services needtobedevelopedtoreflectthis: thereare120,000victimsinanyyearwhoareathighriskofbeingkilledor seriouslyinjuredasaresultofdomesticabuse20; 69%ofhighriskvictimshavechildren21; in75%to90%ofincidentsofdomesticviolence,childrenareinthesameor thenextroom22; childrenwholivewithdomesticviolenceareatincreasedriskofbehavioural problemsandemotionaltrauma,andmentalhealthdifficultiesinadultlife23; thelinkbetweenchildphysicalabuseanddomesticviolenceishigh,with estimatesrangingbetween30%to66%dependinguponthestudy24.The RoyalCollegeofPsychiatristsstates:Abouthalfthechildreninsuchfamilies havethemselvesbeenbadlyhitorbeaten.Sexualandemotionalabuseare alsomorelikelytohappeninthesefamilies25; thereareanestimated50,000to200,000youngpeopleintheUKcaringfora parentwithmentalhealthproblems26;

20CAADA(2010),SavingLives,SavingMoney(availableonlineat http://www.caada.org.uk/Research/Saving_lives_saving_money_FINAL_REFERENCED_VERSION.pdf) 21Howarth,E.,Stimpson,L.,Barran,D.,&Robinson,A.(2009),SafetyinNumbers:AMultisite EvaluationofIndependentDomesticViolenceAdvisorServices 22Hughes,H.(1992)Impactofspouseabuseonchildrenofbatteredwomen,ViolenceUpdate,1 August,pp911.;Abrahams,C.(1994),Hiddenvictims:Childrenanddomesticviolence,NCHAction forchildren) 23Kolbo,J.R.,Blakeley,E.H.,&Engelman,D.(1996),Childrenwhowitnessdomesticviolence:A reviewoftheempiricalliterature,JournalofInterpersonalViolence,vol.11,no.2;Morley,R.,& Mullender,A.(1994)Domesticviolenceandchildren:whatweknowfromresearchinMullender,A., &Morley,R.Childrenlivingwithdomesticviolence:puttingmensabuseofwomenonthechildcare agenda;Hester,M.,Pearson,C.,&Harwin,N.(2000;newed.2007)Makinganimpact:Childrenand domesticviolence:Areader 24Hester,M.,Pearson,C.,&Harwin,N.(2000;newed.2007)Makinganimpact:Childrenand domesticviolence:Areader;Edleson,J.(1999),Theoverlapbetweenchildmaltreatmentandwoman abuse,NationalElectronicNetworkonViolenceagainstwomen(availableonlineat: http://www.vawnet.org/DomesticViolence/Research/VAWnetDocs/AR_overlap.php);Humphreys,C., andThiara,R.(2002),RoutestoSafety:Protectionissuesfacingabusedwomenandchildrenandthe roleofoutreachservices,WomensAidFederationofEngland;Morley,R.,&Mullender,A.(1994) Domesticviolenceandchildren:whatweknowfromresearchinMullender,A.,&Morley,R. Childrenlivingwithdomesticviolence:puttingmensabuseofwomenonthechildcareagenda; Radford,L.,&Hester,M.(2006),Motheringthroughdomesticviolence 25http://www.rcpsych.ac.uk/mentalhealthinfo/mentalhealthandgrowingup/domesticviolence.aspx 26MyCare,TheChallengesFacingYoungCarersofParentswithaSevereMentalIllness,TheMental

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morethan2.6millionchildrenintheUKlivewithhazardousdrinkers, 705,000livewithadependentdrinkerandmorethan8millionpeopleare affectedbyafamilymembersalcoholuse27.A2010NSPCCChildLinesurvey revealedmorethan4,000children,someasyoungasfiveyearsold,had contactedtheserviceduringthepreviousyearworriedabouttheirparents excessivedrinking.Manyofthesecallersalsoreportedinstancesofabuse andneglect28;and 210,000adultsareintreatmentfordrugdependencyeachyear,overathird ofwhomatanyonetimeareparents29.

Earlyhelp:understandingneed
2.21 Problemsmayariseatanytimeinchildrenslivesandsoservicesneedtobe responsivetoemergingneedatallages.Theearlyyears,however,areaperiod whenconstructivehelpcanhavethemostimpact: Anexplosionofresearchintheneurobiological,behavioural,andsocial scienceshasledtomajoradvancesinunderstandingtheconditionsthat influencewhetherchildrengetofftoapromisingoraworrisomestartinlife. Thesescientificgainshavegeneratedamuchdeeperappreciationof:(1)the importanceofearlylifeexperiences,aswellastheinseparableandhighly interactiveinfluencesofgeneticsandenvironmentonthedevelopmentofthe brainandtheunfoldingofhumanbehaviour;(2)thecentralroleofearly relationshipsasasourceofeithersupportandadaptationorriskand dysfunction;(3)thepowerfulcapabilities,complexemotions,andessential socialskillsthatdevelopduringtheearliestmonthsandyearsoflife;and(4) thecapacitytoincreasetheoddsoffavourabledevelopmentaloutcomes throughplannedinterventions.Earlypathways,thoughfarfromindelible, establisheitherasturdyorfragilestageonwhichsubsequentdevelopmentis constructed30. 2.22 Governmentpolicyinrecentyearshasbeendesignedinrecognitionthattheservices childrenandfamiliesreceivehavetoooftenbeenlimited,becauseofthefailureof professionalstounderstandoneanother'srolesortoworktogethereffectively. Policieshaveemphasisedthebenefitstochildrenandyoungpeopleofprofessionals workingtogetherwithfamiliestotrytounderstandtheirneedsearlyon,identifythe
HealthFoundation(availableonlineat http://www.mentalhealth.org.uk/publications/?entryid=38571&entryid5=83759&cord=DESC&char= M) 27Manning,V.et.al.(2009)Newestimatesonthenumberofchildrenlivingwithsubstancemisusing parents:ResultsfromUKnationalhouseholdsurveys,JournalofPublicHealth,9(1),pp377389 28NSPCCmediarelease:http://www.nspcc.org.uk/newsandviews/mediacentre/press releases/2010/100816childrencarryshameofparentsdrinkanddrugsabuse/100816children carryshamefulsecretofparentsdrinkanddrugsabuse_wdn78148.html. 29NationalTreatmentAgencyfigures:http://www.nta.nhs.uk/aboutbenefits.aspx 30NationalResearchCouncil(2000)FromNeuronstoNeighbourhoods:TheScienceofEarly ChildhoodDevelopment,WashingtonD.C.

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supportandservicesneeded,andworktogethertomeetthem.Evidencesubmitted tothereviewshowsstrongsupportforsharedthinkingandassessmentamong professionals,where,withthefamilysconsent,afullerunderstandingofthefamilys needsisestablished,usingaformatcommontoalllocalagenciesthatcanbeshared amongthemasthefamilypermits.Cruciallysuchanassessmentshouldseekthe viewsandfeedbackofthechildreninvolvedsothattheirvoicecaninformthe assessmentandthenatureoftheserviceprovided. 2.23 However,evidenceprovidedtothisreviewalsoshowsthemixedexperiencesand absenceofconsensusabouthowwellprofessionalsareunderstandingoneanothers rolesandworkingtogether.Thisemphasisestheimportanceofthoughtfully designedlocalagreementsbetweenprofessionalsabouthowbesttocommunicate witheachotherabouttheirworkwithafamily,andsupportingthoseconversations withalocallyagreedformatforrecordingtheneedsofafamilyandtheactionand helpthatwillbeprovided.

Earlyhelp:recentpolicyandpracticedevelopments
2.24 Undertakinganearlyassessmentisthestartofthehelpingprocess,enablingthe developmentoftherelationshipbetweentheprofessionalandthechildandfamily, butitwillnotitselfbesufficienttomeettheneedsoffamilies.TheCoalition Governmenthassetintrainstructuralreformstoservicessuchaseducation, policing,welfareandhealth.Takentogetherthesechangeshavethepotentialto changedramaticallythewayservicesinteractandsupportchildren,youngpeople andfamilies,buttheyhaveacontinuingcrucialroleinpreventingorrespondingto abuseandneglect.Universalservicesplayanimportantroleintheprovisionof informationtoparentsandchildren.Childrenhavecitedtheimportanceofaccessto goodinformationaboutabuseandaboutservicessotheycanunderstandwhether theyarebeingharmed.Theyhavealsostressedtheimportanceoftellinginasafe environment;usuallyuniversalservicesareseenbychildrenasasafehaven. Rolessuchasnamedanddesignatedhealthprofessionalorschoolleadfor safeguarding,forexample,haveanimportantparttoplayinthechildprotection system.Designatedleadswhoareexperiencedinchildprotectioncanhelp colleaguesthinkthroughworryingsignsanddecidewhetherornotreferralto childrenssocialcareisneeded.Topreventneglectandabuse,theprovisionand supportprovidedthrougharangeofuniversalservices,suchaseducationandhealth careiscritical. Therearealreadyanumberofpolicycommitmentsforuniversalandmoretargeted servicestomakeearlyhelpmoreeffective,includingsupportfortheprovisionof freenurserycareforpreschoolchildren. SureStartChildrensCentreswillbe reformedwithanincreasedfocusonearlyinterventionsupportforthefamiliesin greatestneedandgreaterinvolvementofvoluntaryandcommunityorganisations withatrackrecordofsupportingfamilies.

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2.27

Similarlythenumberofhealthvisitorsisduetobesubstantiallyincreased.Health visitorsaretrainednursesormidwiveswithspecialisttraininginfamilyand communityhealth.Theyareskilledatspottingearlyissues,whichmaydevelopinto problemsorriskstothefamilyifnotaddressed,forexampleaparentstrugglingto copeorachildhealthissuewhichneedsspecialattention.Thenationalhealth visitingprogrammeaimstoincreaseoverallnumbersofhealthvisitorsby4200by April2015to: develop,supportandpromotetheservicessetupbyfamiliesand communitiesthemselvesaspartoftheYourCommunityservice; delivertheHealthyChildProgrammeensuringallchildrengettheessential immunisations,healthanddevelopmentchecksaspartofaUniversal Service; providearapidresponsewithexperthelpforproblemslikepostnatal depressionorasleeplessbaby,aspartoftheUniversalPlusService;and provideongoingsupportaspartofarangeoflocalservices,workingtogether andwithdisadvantagedfamiliestodealwithmorecomplexissuesovera periodoftime,undertheUniversalPartnershipPlusService31.

ThisisbeingtakenforwardinpartnershipwithSureStartChildrenCentres,local authoritiesandthenewHealthandWellbeingBoardsthatlocalauthoritieswilllead. 2.28 ThePublicHealthWhitePaper,HealthyLives,HealthyPeople:Ourstrategyfor publichealthinEngland32,respondstoProfessorSirMichaelMarmotsFairSociety, HealthyLives report33,andaimstotacklethewidersocialdeterminantsofhealth. Thisnewapproachwillaimtobuildpeoplesselfesteem,confidenceandresilience rightfrominfancy,withstrongersupportforearlyyears. Alongsidethisreviewintochildprotection,thereareotherreviewsestablishedby theGovernmentthatareveryrelevanthere.ClareTickellsreview34oftheEarly YearsFoundationStageextendsacrosstheuniversalserviceofeducationandcare andisconsideringhowtoidentifyandprovidesupportforchildrenwhoarealready showingdevelopmentaldelaysorbehaviouralproblemsandwhoareinneedof additionalhelp.FrankFieldsreview35lookedathowtoprovideabettereconomic environmentforfamilies,povertybeingamajorcauseofadditionaldifficultiesin providinggoodcareandmaderecommendationsonreducingchildpoverty.Graham

2.29

31DepartmentforHealth(2011),HealthVisitorImplementationPlan20112015:ACalltoAction 32Availableonlineat http://www.dh.gov.uk/en/Publicationsandstatistics/Publications/PublicationsPolicyAndGuidance/DH _121941 33Marmot,M.(2010),FairSociety,HealthyLives(availableonlineat http://www.marmotreview.org/) 34Launchnoticeavailableonlineat http://www.education.gov.uk/inthenews/inthenews/a0061485/reviewofearlyyearsfoundation stage 35Field,F.(2010),FoundationYears:preventingpoorchildrenbecomingpooradults(availableonline athttp://povertyreview.independent.gov.uk/)

30

Allensreview36intoearlyinterventionhasalreadymadeastrongargumentforthe economicvalueinprovidinghelpintheearlyyearsandhasidentifiedanumberof programmesofhelpthathaveevidenceofsomeeffectivenessinimproving childrenslifechances. 2.30 TheCoalitionProgrammeforGovernmentmadeacommitmenttoinvestigateanew approachtosupportingfamilieswithmultipleproblems.Thereareanestimated 120,000familieswithmultipleproblemswith46,000havingoneormorechild,aged 1015withbehaviourproblems.Overathirdofthesefamilieshavechildrensubject tochildprotectionprocedures37.Thesefamiliesexperiencearangeofhealthissues, includingpoormentalhealth,alcoholandsubstancemisuse.Evidenceshowsthat thesefamiliesarealsoatriskofexperiencingviolenceinthehousehold. Therearethreestrandstothestrategy: investtotestandshare:asmallnumberofexemplarareasaretestingout newapproaches; learnfromsuccess:mentorareaswithatrackrecordofsuccessfully supportingfamiliesareactingasdisseminationhubs,sharingtheirknow howtohelpothersintheirareas;and breakdownbarriers:currentlyupto20localagenciescansupportthesame family,eachwiththeirownfundingrulesandregulations.Thishasbeen showntostandinthewayofcreatingasingleservicededicatedtotacklingall theproblemsaffectingasinglefamily.From1April2011localagenciesinthe first16areas(or28localauthorities)willbeabletocreateaCommunity Budgetfreeingupmoneytobespentoninnovativetypesoffamilyservice.

2.31

2.32

ThenewstrategywillbuilduponFamilyInterventions(FIs)thatareonewayof supportingvulnerableanddisadvantagedfamilies.Theyuseamultiagency approachwithanintensiveandpersistentstyleofworkingtochallengeand supportfamilies.TheFImodelfocusesonhavingakeyworkerwholinksinwith otheragenciesincludinghealthtoaddresstheneedsofeachfamilymember. TheFamilyNursePartnership(FNP)programmeisapreventiveprogrammefor vulnerableyoungfirsttimemothers.Speciallytrainednursesofferintensiveand structuredhomevisitingfromearlypregnancyuntilthechildrenaretwo,using practicalactivitiesandstrengthbasedmethodsthatchangebehaviourandtacklethe emotionalproblemsthatpreventsomemothersandfatherscaringwellfortheir child.FNPhasbeentestedinEnglandsince2007andtheSecretaryofStatefor HealthannouncedinOctober2010thathewoulddoublethenumberofplaceson FNPby2015.Theprogrammeisbasedonmorethan30yearsofUSresearchwhich
36Allen,G.(2011),EarlyIntervention:thenextsteps(availableonlineat http://media.education.gov.uk/assets/files/pdf/g/graham%20allens%20review%20of%20early%20int ervention.pdf) 37 PatternsofSpecialistMentalHealthUsageinEngland,ONS. http://www.neighbourhood.statistics.gov.uk/dissemination/Info.do?page=analysisandguidance/analy sisarticles/patternsofspecialistmentalhealthserviceusageinengland.htm.

2.33

31

hasshownsignificantbenefitsfordisadvantagedyoungfamilies,togetherwith substantialcostsavings. 2.34 EarlyevaluationinEnglandsuggeststhatFNPcanbedeliveredsuccessfullyandthat takeupisgoodwithpromisingpotentialimpacts.Mothersarereducingsmokingin pregnancyandahighproportionareinitiatingbreastfeeding;theyhavesignificantly improvedmastery,aformofselfesteemlinkedtopositivebehaviourchange,atthe endoftheprogrammecomparedtothestart;andtheyareverypositiveabouttheir parentingcapacity,reportinghighlevelsofwarmparenting,lowlevelsofharsh disciplineandlevelsofparentingstresssimilartothatinthenormalpopulation.FNP childrenappeartobedevelopinginlinewiththepopulationingeneral,whichisvery promisingasthisgroupusuallyfaresmuchworse. AreviewofinterventionstopreventchildmaltreatmentintheLancetrateditasthe programmewith'bestevidence'describeditashavingundergonethemostrigorous andextensiveevaluationofchildmaltreatmentoutcomes38.

2.35

Multiagencylocalityteamswithsocialworkexpertise
2.36 Childrensproblemsmaybenoticedbytheimmediateorextendedfamilywhoseek helporbyprofessionalsincontactwithfamilymembers,forexampleprimaryhealth carecentres,healthvisitorservices,midwifery,antenatalservicesandGPpractices, schools,earlyyearsservicessuchasnurseriesandchildrenscentres,thepolice, adultmentalhealthservices,substancemisuseservices,andhousingservices.There are,therefore,alargenumberofprofessionalsandthepublicwhomayseesignsfor concernthatachildisbeingabusedorneglected.Decidinghowseriousthesesigns areisnotalwayseasy. Asmentionedearlier,abuseandneglectrarelypresentinanunequivocalway,but peopleseeevidencethatisambiguous;itcouldindicatemaltreatmentorhavea morebenignexplanation.Manyinuniversalserviceswillhavehadsometrainingin recognisingmaltreatmentandthoseineducationandhealthhaveaccesstomore experiencedcolleagueswhoarethedesignatedleadsforchildprotectionandwho canhelpthemjudgewhethertheirevidencewarrantsfurtheractionornot. However,theevidencegiventothisreviewsuggeststhatthedecisiontoreferonto childrenssocialcareisexperiencedasproblematicbymany.Thevariationin referralratesaroundthecountryandthefluctuationsinreferralratesinresponseto highprofilechilddeathsbothsuggestthatcomplexity,uncertainty,andanxietyplay asignificantpartinmakingthedecisiontorefer. Decidingwhatlevelofsupport/safeguardingresponseisrequiredremainsa vexingprobleminchildwelfare,anddecisionsareoftentakeninchallenging circumstancesandwithlimitedinformation39.

2.37

MacMillan,H.L.,Wathen,C.N.,Barlow,J.,Fergusson,D.,Leventhal,J.M.andTaussig,N.(2009), Interventionstopreventchildmaltreatmentandassociatedimpairment,Lancet373:250266 39 Broadhurst,K.,White,S.,Fish,S.,Munro,E.,Fletcher,K.,&Lincoln,H.(2010),Tenpitfallsandhow

38

32

2.38

Thereviewhasbeenimpressedbythesolutionsdevelopedinsomelocalareas wheremultiagencyteamsthatincludesocialworkersarebasedinthecommunity withuniversalservices.Thisallowsthoseintheuniversalservices,whobecome concernedaboutachildssafetyorwelfare,toreadilydiscussthiswithan experiencedteamwhocancheckwhatelseisknownaboutthechildandfamilyand provideevaluationandassistance.Thisteamenablesadeeperprofessional considerationofthepresentingcontextandisresultinginbetterdecisionsabout howtoallocateearlyhelpand/ormoreintensesocialcaresupport.Thisapproach allowsprofessionalsandpractitionerstohaveaccesstosocialworkexpertise, helpingthemtomakebetteruseoftheircloserknowledgeandengagementswith thechildandfamily.Morespecifically,theprofessionalanxietythatexistsintrying tounderstandtheseverityoftheirconcernsaboutachildislessened.Thisseemsto comefromtheprovisionofsocialworkexpertisetotalkthroughconcernbeforea formalassessmentorreferralismade.Moresenseismadeofthepresenting concernandinformation,andaconsensusreachedaboutbestnextsteps. Theevidencefurthershowsthatthenumberofinappropriatereferralstochildrens socialcareisreduced.Theteamsarereportedtobehelpingtodirectthosefamilies inneedofadifferenttypeofhelptoanappropriatealternative. Theselocalinnovationshavebeenofdifferentforms.Some,forexample,havebeen socialworkledandsomeheadedbythepolice.Thereviewwillexplorehowlocal areascanbesupportedindevelopingtheirownarrangementsforteamstomeetthe localneedsofthecommunity.Becausesuchteamsprovidebenefittomany agencies,itisperhapsappropriatethattheirfundingshouldalsobesharedamongst theseagencies.

2.39

2.40

Conclusion
2.41 Thereisastrongcaseforprovidingprimaryandsecondarypreventiveservicesto preventmaltreatmentoritsfurtherescalation.Forchildren,providinghelpearly reducestheamountofdistressorharmtheymaysufferandweknowmoreabout preventingmaltreatmentthanstoppingitsrecurrence.Offeringhelpearlycanalso bedoneinarespectfulwaythatdoesnotunderminetheresponsibilityofthe parentstobringuptheirchildren.However,theproblemofidentifyingthose childrenreceivingearlyinterventionservicesonaconsensualbasisinpartnership withparents,butwhoaresuffering,orlikelytosuffer,significantharmisnoteasy. Thereviewhasbeenimpressedbythoselocalinnovationsthathavetackledthis problembycreatingmultiagencyteamswhereconcernscanbeexaminedandmore accuratejudgmentsmadeaboutwhatlevelandtypeofhelpisneeded. Commontothesesuccesseshasbeenthecreationofchannelsthroughwhich practitionersfromdifferentagenciescandiscusstheirconcerns,eitherinameeting roomorsimplyoverthetelephone.Thevalueoftheseinformalbutstrategic conversationsisthattheyenableprofessionalstoexchangeideaswithoutneedingto
toavoidthem:whatresearchtellsus,p.3

2.42

33

enterformalproceedings.Itistheseinformalrelationshipsbetweendifferenttypes ofexpertwhichthereviewholdstobecrucialtoimprovingearlyhelp.Whendone properly,thisshouldhelptoreducethenumberofunnecessaryreferralsto childrenssocialcare,freeingtimeandresourcesinbusydepartments.Butitshould alsogiveuniversalservicesandfamilysupportworkersbetteropportunitiestotalk throughconcerns,evenwhentheyarenotimmediatechildprotectionissues,andso offerabetterchanceofthesechildrenreceivingappropriateattentionmorequickly. Initsnextphasethereviewwillconsiderhowthismutuallybeneficialrelationship betweenservicescanbefosteredandencouraged.

34

ChapterThree:Childandfamily socialwork

Introduction
3.1 Acentralpartofthisreviewsremitistomakerecommendationsonimprovingsocial workpractice.Thischapterconsiderstheexpertisesocialworkersneedtobeableto exerciseandthenextchapterfocusesonhowthesocialcareorganisationcanhelp (orhinder)theminacquiringandusingthatexpertise.

3.2

Whenchildrenandyoungpeoplecomeintocontactwithchildrenssocialcare,their fundamentalneedisforunderstandingoftheproblemstheyandtheirfamilieshave, andfortheprovisionofhelptoresolvetheminordertoimprovetheirsafetyand wellbeing.Howcansocialworkersbehelpedtoprovidetheunderstandingand helpthatchildrenandyoungpeopleneed?Howcantheyhelpparentschangeso thattheyprovidesafeandgoodqualitycare?TheSocialWorkTaskForceandthe SocialWorkReformBoardhavesummarisedtheirambitionsforreform40: bettertrainingwithemployers,educatorsandtheprofessionalltakingtheir fullshareofresponsibilityforinvestinginthenextgenerationandinenabling socialworkersalreadyinpracticetodeveloptheirskillscontinuously; improvedworkingconditionswithemployerssigninguptonewstandards forthesupportandsupervisionoftheirfrontlineworkforcethatmakegood practicepossible; strongerleadershipandindependencewiththeprofessiontakingmore controloveritsownstandards,howitisunderstoodandvaluedbythe public,andthecontributionitmakestochangesinpolicyandpractice; areliablesupplyofconfident,highquality,adaptableprofessionalsintothe workforce,wheretheycanbuildlongtermcareersonthefrontline; greaterunderstandingamongthegeneralpublic,serviceusers,other professionalsandthemediaoftheroleandpurposeofsocialwork,the demandsofthejobandthecontributionsocialworkersmake;and moreuseofresearchandcontinuingprofessionaldevelopmenttoinform frontlinepractice.

3.3

Thisreviewendorsestheiranalysisoftheproblemsandtheirrecommendationsfor improvingthequalityofsocialworkpractice.However,italsoseekstobuildon thesefoundationstospecifythespecialistskillsandknowledgeneededinchildand familysocialwork.Thereisnowasubstantialbodyofresearchevidencethatcan helpsocialworkersmakebetterassessmentsofchildrensneeds,andoffermore effectivehelptofamiliestocreatesaferandmorenurturingparenting.Skilledsocial

40

SocialWorkTaskForce(2009),BuildingaSafeandConfidentFuture,p6

35

workerscanmakeasignificantdifferencetothequalityofchildrenslives.Farmer41 illustratesthispointwell,reportingthatthehighestsuccessrateforreunifying childrenwiththeirbirthfamilieswas64%whilethelowestwas10%,withthekey determinantbeingtheskillandinvestmentofthesocialworkteam.

3.4

However,asthefirstreportofthisreviewconcluded,weneedtofocusnotonlyon whatexpertisewewantanindividualsocialworkertohave,butalsoonwhatwork environmenthelpsthemdevelopandusetheirexpertise.

Indesign,weeitherhobbleorsupportpeoplesnaturalabilitytoexpressforms ofexpertise42.

3.5

Itisimportanttoseethequalityofanyonesocialworkersperformanceasnotjust beingduetotheirexpertisebutarisingfromtheinteractionbetweenwhatthey bringtothejobandtheaspectsoftheworkenvironmentthatmakeiteasieror harderforthemtoexercisethatexpertise.Adysfunctionalworkplacemakesit difficultforeventhemostskilledandmotivatedsocialworkerstoachievethelevel ofeffectivenessthattheywouldlike.Thisappliesnotonlytothemajorobstaclesto goodpracticesuchasheavycaseloadsorlackofsupervision,buttothemoresubtle influencesofthedesignofassessmenttools,ororganisationalmessagesabout priorities.Thelessonslearnedinothersafetycriticalareasofworksuchashealth andaviationclearlyshowthatstudyingtheinterplaybetweenworkersandthework environmentisthemostproductivewayofimprovingstandardsandreducing errors43. Thischapterbeginsbylookingathowpeopleexerciseexpertise,howtheyusetheir differentreasoningcapacitiesandemotionsbecausethishasimplicationsforhow theyaresupportedtoreachahighlevelofperformance.Thisaccountbringsout howengagingwith,andunderstandingachildandtheirfamily,involvesfarmore thanlogicalreason.Whensocialworkersaretalkingtoachildandfamilyintheir home,theyaredrawingonseveralsourcesofinformationandmakingswift decisionsandchangesastheinterviewprogresses.Theirconsciousmindispaying attentiontothepurposeoftheirvisit;atanintuitiveleveltheyareformingapicture ofthechildandfamilyandsensingthedynamicsintheroom,notingevidenceof anger,confusion,oranxiety.Thisfeedsintotheirconsciousawarenessandhelps shapethewaytheinterviewprogresses.Theirownemotionalreactionisonesource ofinformation;thedespair,forexample,thatsomeparentsfeelevokesanempathic responseinothers.Itwillbearguedthatpreviousreformshaveconcentratedtoo muchontheexplicit,logicalaspectsofreasoningandthishascontributedtoa skewedmanagementframeworkthatundervaluesintuitivereasoningandemotions andthusfailstogiveappropriatesupporttothoseaspects.
Farmer,E.etal(2008),ReunificationofLookedAfterChildrenwiththeirParents:Patterns, InterventionsandOutcomes(availableonlineathttp://www.education.gov.uk/research) 42 Woods,D.(2002),Steeringthereverberationsoftechnologychangeonfieldsofpractice:Lawsthat governcognitiveworkinProceedingsofthe24thAnnualMeetingoftheCognitiveScienceSociety, Atlanta,GA,ed.Gray,W.D.,&Schumm,C.D..(seehttp://csel.eng.ohio state.edu//productions/laws/laws_talk/media/0_Steering.pdf) 43 Woods,etal(1994);DepartmentofHealth(2000)
41

3.6

36

3.7

Thisaccountofhumanreasoningtheninformsthesubsequentsectiononforming relationshipswithchildrenandadults,relationshipsthat,inthechildprotection context,frequentlyinvolveintenseemotionsandtheneedtoaddresssensitiveand challengingissues.

Reasoningandemotions

3.8

Socialworkersaretryingtounderstandandhelpotherhumanbeings.Thismeans thatskillsinformingrelationshipsarefundamentaltoobtainingtheinformationthat helpsthemunderstandwhatproblemsafamilyhas,engagingthechildandfamily andworkingwiththemtopromotechange.Thismayseemobviousbut,whenwe lookattheeffortsinrecentyearstoimprovesocialworkperformance,itappearsto havebeenoverlookedorundervalued.Itshouldalwaysbeofparamountimportance forsocialworkerstoseekandbeinformedbytheviewsandopinionsofchildren. Whatdoesthechildthinkneedstochangetoaddresstheirproblem?Howshould thesocialworkergoaboutmakingthechangehappen? Intheextensivereformsthathaveshapedtodaysworkenvironment,the professionalaccountofsocialworkpracticeinwhichrelationshipsplayacentralrole appearstohavebeengraduallystifledandreplacedbyamanagerialistaccountthat isfundamentallydifferent.Themanagerialistapproachhasbeencalledarational technicalapproach,wheretheemphasishasbeenontheconscious,cognitive elementsofthetaskofworkingwithchildrenandfamilies,oncollectinginformation, andmakingplans.Thefocusofreformshasbeenonprovidingdetailedassessment forms,tellingthesocialworkerwhatdataaboutfamiliestocollectand,howquickly tocollectit.Lessattentionhasbeengiventohelpingfrontlinestaffacquiretheskills toanalysetheinformationcollected.Thenextstageinmanagingacaseisplanning howtorespondandthis,asevidencetothisreviewhasshown,hasincreasingly meantreferringontootherservicesratherthanprovidingdirectsocialworkhelp.In somecases,formulaicresponseshavebeendeveloped,forexamplespecifyingwhen acertainnumberofreportsofdomesticviolencehavebeenreceivedtriggeravisit. Therationaltechnicalapproachhasfedintoaviewthatagoodenoughpictureof practicecanbegainedfromproceduralmanualsandfromthewrittenrecordwhere theresultsofthecognitiveworkaredisplayed.Theclaimthatpracticeis transparenthasusuallymeantthereisawrittenrecordofsomeaspectsofpractice, althoughsocialworkersreportlittleofthethinkingandactiongetsrecorded.Ithas fosteredaviewthatthemoreimportantpartofsocialworkiscarriedoutona computer.Goodrecordsareimportant:theyarethefuturereferencepointforthe childandprovideanaccountofwhatactionshavebeentakenandwhybythelocal authority.Butifwetaketheperspectiveofchildrenandtheirparents,themost importantactivityworktakesplacewhensocialworkersmeetchildrenandfamilies, trytocommunicatewiththem,workwiththem,andhelpthemtochange. Theexplicit,cognitiveaspectsoftheworkareimportantbutprovideanincomplete account.Knowingwhatdatatocollectisuseful,butitisequallyusefultoknowhow

3.9

3.10

3.11

37

tocollectit;howtogetthroughthefrontdoorandcreatearelationshipwherethe parentiswillingtotellthesocialworkeranythingaboutthechildandfamily;howto askchallengingquestionsaboutverysensitivematters;andhavingtheexpertiseto sensethatthechildorparentisbeingevasive.Aboveall,itisimportanttobeableto workdirectlywithchildrenandyoungpeopletounderstandtheirexperiences, worries,hopesanddreams.

3.12

3.13

Focusingonthecentralityofrelationshipskillsdrawsattentiontotherolesof intuitiveunderstandingandemotionalresponses.Consciouslogicalthinkinghas quiterightlybeenhighlyvaluedasahumanattribute,butthetraditionalviewthatit isinherentlysuperiortointuitionandemotionhasbeenoverturnedby developmentsinneuropsychology.Hammond44arguesconvincinglyfortheneedto seelogicalandintuitivethinkingonacognitivecontinuumwhereweuseadifferent balancebetweenthemdependingonwhattaskwearecarryingout.Solvingamaths problemisattheanalyticextremewhilecalmingafrightenedchildusesintuitive understanding.Theimportanceofourintuitivereasoningcapacityisalsoillustrated bythedifferenceinsizebetweenourconsciousandunconsciouscapacities: Itisestimatedthatoursenseorganscollectbetween200,000andImillionbits ofinformationforeverybitofinformationthatentersourawareness. Consciousperceptionrepresentsonlythesmallestfractionofwhatweabsorb fromourworldlyencounters.Itisthetipofaniceberg45. Researchinneuropsychologyshowsthatourintuitiveandemotionalresponses occurautomaticallyandoutsideconsciousawareness;wecannotchoosetobeonly logical,thinkingmachines46.Whenasocialworkervisitsahomeandthefather behavesinathreateningmanner,hisorherbodyreactsautomatically,generating stresshormonesinresponsetotheperceivedthreat.Similarly,whenan experiencedsocialworkermeetsafamily,heorshecanquicklypickupanintuitive awarenessofthestateofthedynamicsinthefamily,thewarmthoftherelationship betweenmembers,ortheleveloffearfeltbyachild.Appreciatingtheimportance ofbothlogicalandintuitiveunderstandingandthecontributionofemotionsoffers guidanceonthedifferenttrainingneedsinusingthemtobesteffect. Intuitionissometimespresentedasamysteriousormysticalprocess,butitsphysical locationandthefeaturesoftheprocessareunderstood.Itisonlymysteriousinthe sensethatitisgenerallyanunconsciousprocessthatoccursautomaticallyin responsetoperceptions,integratingawiderangeofdatatoproduceajudgmentina relativelyeffortlessway.Itisveryrapidandrelativelyindependentoflanguage, orientedtowardsidentifyingpatterns.Itneednotremainunconsciousbutcanbe articulatedandthisabilitycanbeimprovedwithpractice.Supervisionofcasework typicallyinvolveshelpingpractitionersdrawouttheirreasoningsothatitcanbe reviewed.
Hammond,K.R.(1966),Probabilisticfunctionalism:EgonBrunswik'sintegrationofthehistory, theory,andmethodofpsychologyinThepsychologyofEgonBrunswik,ed.Hammond,K.R. 45 ThieleL.(2006),TheHeartofJudgment:PracticalWisdom,Neuroscience,andNarrative,p121 46 Hammond,K.(2007),BeyondRationality
44

3.14

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3.15

Gutfeelingsareinfactneitherimpeccablenorstupid;theytakeadvantageofthe evolvedcapacitiesofthebrainandarebasedonrulesofthumbthatenableustoact fastandwithastoundingaccuracy47.Theyarenotimpeccable,asresearchshows, becauseintuitivejudgmentsarevulnerabletopredictabletypesoferrorandcritical challengebyothersisneededtohelpsocialworkerscatchsuchbiasesandcorrect them48. Klein49andhiscolleagueshavedoneinvaluableworkinstudyinghowexperienced workersperforminreallifesituations.Theirstudiesof,amongothers,firefighters, policeofficers,andpilotshavehelpedthembuildapictureofhowpeoplemake decisionsandactthathasdirectrelevancetounderstandingexpertiseinsocialwork. Intuitiveexpertiseisbuiltupthroughpatternrecognitionandthishasimplications forhowsocialworkersshouldbetrained,managed,andprovidedwithacareerpath thatvaluesandpromotesthecontinualdevelopmentofexpertise. Theemotionaldimensionofworkingwithchildrenandfamiliesplaysasignificant partinhowsocialworkersreasonandact.Ifitisnotexplicitlydiscussedand addressedthenitsimpactcanbeharmful50.Itcanleadtodistortionsinsocial workersreasoningbecauseoftheunconsciousinfluenceithasonwhereattentionis focusedandhowinformationisinterpreted.Forexample,asocialworkercanfeel suchcompassionfortheneedinessofamotherthatheorshefailstoseeherchilds suffering.Socialworkersshouldalwaysconsidermattersfromtheperspectiveofthe childandaskthemselves,Whatarethechildsneeds?.Thesecondharmful repercussionisonitsimpactontheworkersthemselves.Beingexposedtothe powerfulandoftennegativeemotionsfoundinchildprotectionworkcomesata personalcost.Iftheworkenvironmentdoesnothelpsupportworkersanddebrief themafterparticularlytraumaticexperiences,thenitincreasestheriskofburnout which,inthehumanservices,hasbeendefinedintermsofthreedimensions: emotionalexhaustion,depersonalisation(orcynicism),andreducedpersonal accomplishment51. Theneedforchallengebyothersisreinforcedbythefactthatintuitivereasoning generatesfeelingsofcertitude52andthischaracteristicmakesitveryattractivefor theindividualwhoisoperatinginaworldofuncertainty.Thedownsideofthisis thatthepractitionerwhohasagutfeelingaboutacasehasasenseofconfidencein thatjudgmentthatcanmakethepersonresistanttochangeorchallenge.
Gigerenzer,G.(2002),ReckoningwithRisk,p228 Gilovich,T.,GriffinD.,&Kahneman,D.(eds.)(2008),HeuristicsandBiases:ThePsychologyof IntuitiveJudgment 49 Klein,G.(2000),SourcesofPower:HowPeopleMakeDecision;Klein,G.(2009),Streetlightsand Shadows;SearchingfortheKeystoAdaptiveDecisionMaking 50 Howe,D2008TheEmotionallyIntelligentWorker,Basingstoke,PalgraveMacmillan 51 Maslach,C.,Schaufeli,W.,&Leiter,M.(2001),Jobburnout,AnnualReviewofPsychology,52,pp 397422 52 Payne,J.,&Bettman,J.(2007),WalkingwiththeScarecrow:TheInformationProcessingApproach toDecisionResearchinBlackwellHandbookofJudgmentandDecisionMaking,ed.Koehler,D.,& Harvey,N.
48 47

3.16

3.17

3.18

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Supervisionthatincludesacriticalappraisaloftheassessmentandplanningfora childandfamily,therefore,shouldbeseenascentraltogoodpracticeinreducing error.

3.19

Childprotectionprofessionalsareconstantlymakingjudgmentsthatimpinge ontherightsofparentstobewithandrelatetotheirchildrenandtheparallel rightofchildrentotheirparents.Thestakesarehighandchildprotection decisionmakingneedstobeasexplicitaspossibleandbeavailableforreview andscrutiny53. Thissomewhatabstractaccountofsocialworkreasoningwillbeaugmentedinthe finalreportbyadetailedaccountoftheskills,knowledgeandvaluesneededinchild andfamilysocialwork,buildingonthecapabilitiesframeworkoftheSocialWork ReformBoard(overleaf)54.

Relationshipbasedpracticewithchildren

3.20

Theparticipationofchildrenandyoungpeopleindecisionsthataffecttheirlivesis notnewandiscentraltoGovernmentpolicy.BoththeChildrenActsof1989and 2004requirealocalauthoritytoascertainthewishesandfeelingsofchildrenwhen determiningwhatservicestoprovide,orwhatactiontotake,includingwhenitis lookingafterchildren.Thislegislationprovidesthelegalframeworkforchildrens rights.TheUKGovernmentsratificationoftheUnitedNationsConventiononthe RightsoftheChildin1991recognisedchildrensrightstoexpressionandtoreceiving information.ThiswasreinforcedbyArticle10oftheHumanRightsAct1998.Itis vitalthattheselegislativeprioritiestranslatetopracticeatthefrontline. Thereasonforspeakingtochildrenandyoungpeopleisthattheyareakeysourceof informationtounderstandtheproblemstheyandtheirfamilieshave,andtheimpact thisishavingontheminthespecificcultureandvaluesoftheirfamily.Itistherefore puzzlingthattheevidenceshowsthatchildrenarenotbeingadequatelyincludedin childprotectionwork.Apersistentcriticisminreportsofinquiriesandreviewsinto childdeathsisthatpeopledidnotspeaktothechildrenenough.Anoverviewof researchfindingsshowsboththatchildrenareoftenoverlooked,andhowmuchthey appreciateitwhentheyarekeptinformed,consulted,andcanformarelationship withtheworker.

3.21

Turnell,A.(forthcoming),BuildingSafetyinChildProtectionPractice:Workingwithastrengthsand solutionfocusinanenvironmentofrisk 54 SocialWorkReformBoard(2010),BuildingaSafeandConfidentFuture:oneyearon,p.10f

53

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SocialWorkReformBoardCapabilitiesFramework PROFESSIONALISMIdentifyandbehaveasaprofessionalsocialworker, committedtoprofessionaldevelopment Socialworkersaremembersofaninternationallyrecognisedprofession,a titleprotectedinUKlaw.Socialworkersdemonstrateprofessional commitmentbytakingresponsibilityfortheirconduct,practiceand learning,withsupportthroughsupervision.Asrepresentativesofthesocial workprofessiontheysafeguarditsreputationandareaccountabletothe professionalregulator. VALUES&ETHICSApplysocialworkethicalprinciplesandvaluesto guideprofessionalpractice Socialworkershaveanobligationtoconductthemselvesethicallyandto engageinethicaldecisionmaking,includingthroughpartnershipwith peoplewhousetheirservices.Socialworkersareknowledgeableabout thevaluebaseoftheirprofession,itsethicalstandardsandrelevantlaw. DIVERSITYRecognisediversityandapplyantidiscriminatoryandanti oppressiveprinciplesinpractice Socialworkersunderstandthatdiversitycharacterisesandshapeshuman experienceandiscriticaltotheformationofidentity.Diversityismulti dimensionalandincludesrace,disability,class,economicstatus,age, sexuality,genderandtransgender,faithandbelief.Socialworkers appreciatethat,asaconsequenceofdifference,apersonslifeexperience mayincludeoppression,marginalisationandalienationaswellasprivilege, powerandacclaim,andareabletochallengeappropriately. RIGHTS,JUSTICE,&ECONOMICWELLBEINGAdvancehumanrightsand promotesocialjusticeandeconomicwellbeing Socialworkersrecognisethefundamentalprinciplesofhumanrightsand equalityandthattheseareprotectedinnationalandinternationallaw, conventionsandpolicies.Theyensuretheseprinciplesunderpintheir practice.Socialworkersunderstandtheimportanceofusingand contributingtocaselawandapplyingtheserightsintheirownpractice.They understandtheeffectsofoppression,discriminationandpoverty. KNOWLEDGEApplyknowledgeofsocialsciences,lawandsocialwork practicetheory Socialworkersunderstandpsychological,social,cultural,spiritualand physicalinfluencesonpeople;humandevelopmentthroughoutthelifespan andthelegalframeworkforpractice.Theyapplythisknowledgeintheir workwithindividuals,familiesandcommunities.Theyknowanduse theoriesandmethodsofsocialworkpractice.

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CRITICALREFLECTIONANDANALYSISApplycriticalreflectionandanalysis toinformandprovidearationaleforprofessionaldecisionmaking Socialworkersareknowledgeableaboutandapplytheprinciplesofcritical thinkingandreasoneddiscernment.Theyidentify,distinguish,evaluateand integratemultiplesourcesofknowledgeandevidence.Theseincludepractice evidence,theirownpracticeexperience,serviceuserandcarerexperience togetherwithresearchbased,organisational,policyandlegalknowledge. Theyusecriticalthinkingaugmentedbycreativityandcuriosity. INTERVENTIONANDSKILLSUsejudgmentandauthoritytointervenewith individuals,familiesandcommunitiestopromoteindependence,provide supportandpreventharm,neglectandabuse Socialworkersengagewithindividuals,families,groupsandcommunities, workingalongsidepeopletoassessandintervene.Theyenableeffective relationships,andareeffectivecommunicators,usingappropriateskills.Using theirprofessionaljudgement,theyemployarangeofinterventions: promotingindependence,providingsupportandprotection,taking preventativeactionandensuringsafetywhilstbalancingrightsandrisks.They understandandtakeaccountofdifferentialsinpower,andareabletouse authorityappropriately.Theyevaluatetheirownpracticeandtheoutcomes forthosetheyworkwith. CONTEXTSANDORGANISATIONSEngagewith,inform,andadaptto changingcontextsthatshapepractice.Operateeffectivelywithinown organisationalframeworksandcontributetothedevelopmentofservices andorganisations.Operateeffectivelywithinmultiagencyandinter professionalsettings Socialworkersareinformedaboutandproactivelyresponsivetothe challengesandopportunitiesthatcomewithchangingsocialcontextsand constructs.Theyfulfilthisresponsibilityinaccordancewiththeirprofessional valuesandethics,bothasindividualprofessionalsandasmembersofthe organisationinwhichtheywork.Theycollaborate,informandareinformed bytheirworkwithothers,interprofessionallyandwithcommunities. PROFESSIONALLEADERSHIPTakeresponsibilityfortheprofessional learninganddevelopmentofothersthroughsupervision,mentoring, assessing,research,teaching,leadershipandmanagement Thesocialworkprofessionevolvesthroughthecontributionofitsmembersin activitiessuchaspracticeresearch;supervision;assessmentofpractice; teachingandmanagement.Anindividualscontributionwillgaininfluence whenundertakenaspartofalearning,practicefocusedorganisation. Learningmaybefacilitatedwithawiderangeofpeopleincludingsocialwork colleagues,serviceusersandcarers,volunteers,fostercarersandother professionals.

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3.22

Afocusedreviewofrecentevidence55summarisesthekeycharacteristicsthat childrenandyoungpeoplelookforinasocialworker.Theseare: willingnesstolistenandshowempathy,reliability,takingaction,respecting confidences,andviewingthechildoryoungpersonasawholepersonand notoverlyidentifyingachildwithaparticularproblem56;and abilitytocommunicatewithchildrenofvaryingabilitiesandaddressthe emotionalneedsofchildrenatkeypointsintheirlives.

3.23

Messagesfromchildrenontheirexperienceofthechildprotectionsystemwere submittedtothereviewbytheOfficeoftheChildrensCommissioner.Children voicedtheimportanceofbeingheardseparatelyfromtheirparentsandbeing listenedto.Theyexpressedhowconfusingtheyhadfoundtheprocesswhich,in theireyes,wasfarfromtransparent.Theyalsomadeapleaforbetterinformation, honesty,andemotionalsupportthroughouttheprocess.Elementsoffrontline practicethatchildrenandyoungpeopleparticularlyvaluedwereaccesstoconsistent helpfromthesamesocialworker,torespectfultreatmentandtoserviceswhichdo notgetwithdrawnassoonasthecrisisispassed.Theyalsospokeveryhighlyofthe supportprovidedbythirdsectoradvocacyservices,whichtheydescribeascriticalto helpthemtalkaboutabuse. ResearchbytheChildrensRightsDirectorforEnglandgivesvaluableinsightsintothe viewsandexperiencesof50childrenandyoungpeoplewhohadrecentlycomeinto care57.Theoverwhelmingmajorityofchildrenthoughtthat,inretrospect,coming intocarewastherightthingforthemandtheirlivesweregenerallybetterthan before.Theysaid:Beingincarehasgivenmealife,andIhavehadabetterlife thanIeverwouldhavegotathomewithmyfamily.However,onthedaychildren cameintocaretheyfeltscared,sadandupset.Themainthingthatwouldhave madethefirstdayincareeasierwasabetterunderstandingofwhatwashappening tothemandnotbeingseparatedfromtheirsiblings. Theoverwhelmingmajorityofchildrensaidtheydidnotgetachoiceofwherethey weregoingtoliveandwerenotabletovisittheirfirstplacementbeforemovingin. Meetingthecarersbeforewouldhavehelped.Morethanhalfthechildrenhadnot knowntheywerecomingintocareuntilitactuallyhappened,Someonecouldhave explainedthingssoIcouldunderstandwhatwashappening.Aquarterofthe childrenexpectedtoleavecarewhenthingsgotsortedoutathome.Oneofthekey messagesfromthechildrentotheGovernmentwas,BeingincarecanbeOK,evena goodexperienceifyouhavetherightplacementandagoodsocialworker.Ithinkthe caresystemsmainpriorityshouldbemakingsureboththosethingsareOK58.
http://www.cwdcouncil.org.uk/assets/0001/0597/Children_s_views_and_experiences_of_contact_wi th_social_workers_report_July_2010.pdf 56 Hill,1999;Morgan,2006;Curtis,2006 57 http://www.ofsted.gov.uk/Ofstedhome/Publicationsandresearch/Browseallby/Care/Childrens rights/Beforecare 58 Ibid
55

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3.25

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3.26

Analysesofsocialworkassessmentshavealsobeenfoundtocontainlimited accountsofthechildsexperience.ThomasandHollandsqualitativestudyof26 coreassessmentsfoundthattheytendedtoconveyonlynarrowlydefinedand negativeaspectsofthechildrensidentities,withmanydescriptionsstandardised andreplicatedbetweenreports59. Otherstudieshavesuggestedthatsocialworkershavetendedtodrawonafairly narrowinterpretationoftheorywhenrepresentingchildrensneeds,andprovided ratherbriefandformulaicdescriptionsofchildreninwhichchildrensown interpretationsoftheirsituationhaverarelybeenreported60.Evenwhere practitionershavehadspecialisttraininginchildparticipation,theinvolvementof childrenhasonlybeenpartiallysuccessful61. Thecaseforinvolvingchildrenandyoungpeopleseemscompelling,sooneneedsto lookfortheobstaclesthatarehinderingsocialworkersdoingwhatseemsso necessary.Onequestioniswhethersocialworkersfeeladequatelytrainedto communicatewithchildren.Theymayworkwithchildrenofveryvariedages, ethnicities,andcommunicationabilitieswhorequireanequallyvariedrangeofskills inthesocialworker.Playanddrawingsmaybemoreappropriateforsomethan anythingresemblinganinterview.Inchildprotectionwork,too,thechildrenmaybe verydistressedandfrightened,needingverysensitiveskillsincreatingaleveloftrust wherethechildiswillingtospeak.Theemotionalimpactofthisworkcanalsobe verypainful,makingworkersawareofhowterriblesomechildrenslivesare. Besidesmanylackingthenecessaryskills,anotherobstacleislackingthenecessary time.Socialworkersprioritiesareinlargepartnotapersonalchoicebutsetbythe organisationinwhichtheywork.EvidencesubmittedtothisreviewandtoLord Lamingsprogressreport62,showstheextenttowhichfrontlineworkersprioritise thebureaucraticaspectsoftheirwork,andcomplyingwithperformanceindicators, sothatfindingtimetospendwithchildrenandyoungpeopleandcreategood communicationcomeslowonthelistandhenceisfrequentlyomitted.Childrens experiencesofbureaucracyarethattheirsocialworkersareliabletochange,that appointmentsarecancelledandthatworkersareunderstress.Howcanthe organisationbestsupporttheworkforcetoprioritisethecontinuityofrelationships withchildrenandfamilies? Trainingincommunicatingwithchildrenandyoungpeoplecansolvepartofthe problem.Therearealsoavarietyoftoolsthatcanbeusedtohelpchildren

3.27

3.28

3.29

3.30

ThomasJ.&Holland,S.(2010),Representingchildrensidentitiesincoreassessments,British JournalofSocialWork,40(8),26172633 60 Khknen,P.(1999),'Theassessmentofparentinginchildwelfarepractice',ChildrenandYouth ServicesReview,21(7),pp581603;Holland,S.(2001),Representingchildreninchildprotection assessments,Childhood,8(3),pp32239 61 Vis,S.A.,&Thomas,N.(2009),Beyondtalkingchildren'sparticipationinNorwegiancareand protectioncases,EuropeanJournalofSocialWork,12(2):55168 62 http://education.gov.uk/publications/standard/publicationDetail/Page1/HC%20330

59

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communicatetheirviews.TheThreeHousesmodel63,forexample,providesaway forasocialworkerandchildtohaveaconversationaboutwhatisgoingon,what worriesthechild,andwhatthechildwouldliketohappen,withthechildadding drawingsandcommentstothehouseofgoodthings,thehouseofworries,andthe houseofwishes.Thisproducesagraphicrecordthatconveysverypowerfullywhat thechildslifeislikeandwhatheorshewouldliketohappen.

3.31

Someresponsibilityforimprovingpracticewithchildrenandyoungpeoplealsolies withmanagerswhoneedtocreatethespaceandprioritytoallowittohappen. However,evenwiththesechanges,thisisoneoftheareaswherethereview questionsthecurrentlyprevalentmodelofafrontlinesocialworkerpredominantly workingalonewiththechildandfamily.Isitreasonabletoexpecteverysocial workertohavetherangeofcommunicationskillstomeetthediverserangeofneeds ofchildrenandyoungpeople?Whilemanyorganisationswillacceptthatspecialist skillsareneededin,forinstance,talkingwithadeafchild,thereviewquestions whethertherangeofskillsneededwarrantsagreaterlevelofspecialism,aswellas betteraccesstotheskillsofotherprofessionals. Thereviewalsoquestionshowreasonableitisforasingleworkertoprioritisetime withachildwhenconductinganenquiryintoanallegationofabuseorneglector subsequentlyworkingwiththefamilywhentheotheraspectsoftheworkarealsoso important.ThemodeldevelopedinHackneyofhavingaseparatechildrensworker whonotonlycommunicateswiththechild,butrepresentsthechildsviewsand needsincasediscussionsoffersaninterestingalternative.

3.32

Evidencebasedpractice

3.33

Historicallysocialworkershavedebatedwhethertheirprofessionisanartora science:whetheritcanbuildupaknowledgebasefromempiricalresearchor whetheritisessentiallyahumanistoccupationwheretheprimarymediumfor helpingserviceusersisthroughtheempathicandintuitiverelationshipthatis formed.Thissharpdichotomyisnowrarelysupportedinitsextremeformsand certainlytheviewofthisreviewisthatskillsinformingrelationships,usingintuitive reasoningandemotions,andusingknowledgeoftheoriesandempiricalresearch, areequallyimportantcomponentsineffectivesocialwork. Evidencebasedpracticeissometimesusedinanarrowsensetorefertousing methodsofhelpingservicesusersthathaveresearchevidenceofsomedegreeof effectiveness.Hereitisusedinthebroadersenseofdrawingonthebestavailable evidencetoinformpracticeatallstagesoftheworkandofintegratingthatevidence withthesocialworkersownunderstandingofthefamilyscircumstancesandthe familysvaluesandpreferences.Itisnotsimplyacaseoftakinganinterventionoff theshelfandapplyingittoafamily.

3.34

Thefieldofpracticeisnotastatic,passiverecipientofexpertknowledge.
63

Weld,N.(2009),MakingsurechildrengetHELD

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Becausethesituationitselftalksback,resistsandconstrainsthepractitioners everymove,effectivepracticeisnotsomuchamatterofhavingtheright expertknowledgeasofaccommodatingsocialworkknowledgeandexpertiseto thedemandsofthecontextwithgreatflexibility64 3.35 Researchevidencecanhelpimprovethewaysocialworkersseektoengageand motivatefamilies,howtheyassessthesignificanceoftheinformationtheyhavein termsofwhatittellsthemaboutchildrenssafetyandwellbeing,anditcanguide theminthinkingaboutwhattypeofhelpismostlikelytohavesuccess. Knowingaspecificmethodofhelpingfamiliestochangeisusefulbut,whateverthe method,theworkerneedstobeabletoengageandformatrustingrelationshipwith thechildandfamilymembers.

3.36

Arecentoverviewoftheevidenceabouteffectiveinterventionsforcomplex familieswherethreewereconcernsabout(orevidenceof)achildsuffering significantharm,showedtheimportanceofprovidingadependable professionalrelationshipforparentsandchildren,inparticularwiththose familieswhoconcealorminimisetheirdifficulties65 3.37 AstudyofsocialworkbyKneiPaz66showedtheimportanceofrelationshipbased workingandfounditwasthequalityofthetherapeuticbondestablishedbetween socialworkerandclientthatwasthebasisforwhatwasconceivedasapositive intervention. Helperswhoarecold,closeddown,andjudgmentalarenotaslikelytoinvolve clientsascollaboratorsasarethosewhoarewarm,supportive,and empathic.67 3.38

Skillsidentifiedascontributingtorelationshipbuildingandpositiveoutcomes include: therapistcredibility; empathicunderstandingandaffirmationoftheserviceuser; skillinengagingtheuser; afocusontheusersconcerns;and skillindirectingtheusersattentiontotheusersemotionalexperiences68.

3.39

Dales(2004)qualitativestudy69of18familiesprovidessomeexamplesofthe qualitiesthatfamiliesdonotfindhelpful:beinguninterested,ineffective, unsupportive,unreliableandunavailable.

Turner,F.(2005),EncyclopediaofCanadianSocialWork,p319 Barlow,J.&Scott,J.(2010),Safeguardinginthe21stcentury:WheretoNow?,p24 66 Referenced,ibid.,p24 67Gambrill,E.(2006)SocialWorkPractice:ACriticalThinkersGuide.2ndEdition.Oxford,Oxford UniversityPress,p.409 68Ibid.
65 64

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3.40

Researchisalsoarichsourceofinformationtoinformassessments.Forexample, thegrowingunderstandingoftheneurologicaleffectsonbabiesofneglect,or exposuretoviolence,isalteringourunderstandingofhowurgentlyproblemsneed tobeaddressedforthisagegrouptominimiselongtermdamage70. Differenttypesofmaltreatmentcorrelatewithdifferentlevelsoflongtermharm andsoinformjudgmentsofhowsevereitis71.Emotionalabuse,forexample,comes informsthathavemarkedlydifferentlongtermimpacts.Antipathycold,hostile, criticalorrejectingparentingcorrelateswithfewerlongertermadverseoutcomes thanpsychologicalabusethatincludescrueltythroughsadisticandcoercivecontrol anddominationofachildbymeansincludinghumiliation,terrorisation,deprivation ofavaluedobject,deprivationofbasicneeds,extremerejection,cognitive disorientation,corruption,orexploitation.

3.41

Whilethereisnoattempttominimisetheunpleasantnessofantipathyfrom parents,atmoderatelevelsandwhenitoccurswithoutotherneglect/abuseitis morelikelytoconstitutechildinneedexperienceandlikelytobeamenableto parentingprogrammeintervention.Atmarkedlevelsthisislikelytooverlap morewithpsychologicalabuseandtobemoredamaging.However, psychologicalabuseisconsistentlymoredamagingandhasmore characteristicsthatharmchilddevelopmentandinfringeachildshuman rights72. 3.42 Indecidinghowtohelpchildrenandfamilieschange,researchalsoprovidesvaluable evidence.Arecentoverviewoftheresearch73listedthefollowingasexamplesof programmesthathavebeenproventobeeffectiveinaddressingtheneedsof maltreatedchildrenandtheirfamiliesinevaluativestudies: Programmesforparents: ParentsUnderPressure(PUP)andRelationalPsychotherapyareeffective interventionsforsubstancemisusingparents; thePostShelterAdvocacyProgrammeisaneffectiveinterventionforwomen whohavebeenexposedtodomesticviolence;

69Dale,P.(2004),LikeaFishinaBowl:parentsperceptionsofchildprotectionservices,Child AbuseReview,pp13,137157,at153 70Glaser,D.(2000),ChildAbuseandNeglectandtheBrainareview,JournalofChildPsychology andPsychiatry,vol.41,no.1,pp9711;Perry,B.(2006),ApplyingPrinciplesofNeurodevelopmentto ClinicalWorkwithMaltreatedandTraumatizedChildren.TheNeorosequentialModelof Therapeutics,inWebb,N.(ed.),WorkingwithTraumatizedYouthinChildWelfare(see http://www.childtraumaacademy.com/) 71Bifulco,A.,&Moran,P.(1998),Wednesday'sChild:Researchintowomen'sexperienceofneglect andabuseinchildhoodandadultdepression 72 Ibid. 73 Davies,C.,&Ward,H.(forthcoming),SafeguardingChildrenacrossServices:Messagesfrom ResearchonIdentifyingandRespondingtoChildMaltreatment,pp163164

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theEnhancedTriplePPositiveParentingProgrammeiseffectivein addressingadultsownexperiencesofpoorparentingandthepsychological consequencesofabuse;and CognitiveBehaviouralTherapy(CBT)canbeeffectiveinreducingemotionally abusiveparenting,particularlywhenindividualsessionsarecombinedwith groupbasedsessions.

Programmesforparentsandchildren: InfantParentPsychotherapyiseffectiveinimprovingmaternalandchild representationswherethereisaknownhistoryofabuseinthefamily; InteractionGuidancemaybeaneffectiveinterventioninimproving parent/childrelationshipsininfantswithfalteringgrowth,butfurther evaluationwouldbevaluable; ParentChildInteractionTherapyisacognitivebehaviouralmodelthathas beenshowntobeeffectiveinreducingphysicalabuse;and Abusefocussedcognitivebehaviouraltherapycanbemoreeffectivein reducingphysicalabuseandparentchildconflictthantraditionalfamily therapy.

Programmesforchildren: Therapeuticpreschoolisaneffectiveinterventionforchildrenaged124 monthswhohavebeenmaltreatedorareatriskofmaltreatment.Ithasa significantandlastingimpactonparentingandchildbehaviour; Peerledsocialskillstrainingisaneffectiveinterventionfor35yearoldswith ahistoryofmaltreatmentwhoaresociallywithdrawn;and MultitreatmentFosterCareforPreschoolersisaneffectiveinterventionfor maltreatedinfantswhorequirepermanentplacements.TrialsintheUSA haveproducedpromisingresults.

3.43

TheoverviewoftheGovernmentsSafeguardingChildrenResearchInitiativealso emphasisesthatprogrammesmayonlyaddressspecificaspectsofmultipleproblems facedbychildrenandfamilies.Thereforeprofessionals,inconsideringwhetherto usethem,willwishtoutilisetheavailableinformationoneachprogrammetohelp themidentifywhatworks.Thetypesofprogrammesofferedshouldbeappropriate tothecarefullyassessedneedsofeachchildandfamilyandinparticularthelevelof severityofidentifiedproblemsand/orofmaltreatment.Itshouldalsobebornein mindthattheprogrammesdonotofferinstantsolutions.Forexample,thereare significantratesofrecurrenceofmaltreatmentandinsomecasespooroutcomesin thefollowupstudies.Moreover,notallinterventionshavebeenshowntobe effectiveinaddressingthemultiplicityofadversitiesfacedbysuchfamilies.Most specificinterventionsareofshortdurationwhichmeansthatmaltreatingparents andtheirchildrenwilloftenneedcontinuingsupportfromsocialworkers,health visitorsorotherprofessionalsaftercompletingtheprogramme.

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Developingexpertise

3.44

Thereisnowaconsiderablebodyofresearchonhowexpertise,inwhateverfield,is developed.Thisprovidesvaluableguidanceforsocialwork. Intuitiveandanalyticreasoningskillsaredevelopedindifferentways,sochild protectionservicesneedtorecognisethedifferingrequirementsiftheyaretohelp practitionersmovefrombeingnovicestoexpertsinbothdimensions.Analyticskills canbeenhancedbyformalteachingandreading.Intuitiveskillsareessentially derivedfromexperience.Experienceonitsown,however,isnotenough.Itneeds tobealliedtoreflectiontimeandattentiongiventomullingovertheexperience andlearningfromit.Thisisoftenbestachievedinconversationwithothers,in supervision,forexample,orindiscussionswithcolleagues.MichaelOakeshott drawsattentiontothelimitationsofacrowdedlifewherepeoplearecontinually occupiedandengagedbuthavenotimetostandbackandthink74.Aworkinglife givenovertodistractedinvolvementdoesnotallowfortheintegrationof experience. Klein75identifiedfourkeywaysinwhichexpertslearn:

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engagingindeliberatepractice,andsettingspecificgoalsandevaluation criteria; compilingextensiveexperiencebanks; obtainingfeedbackthatisaccurate,diagnostic,andreasonablytimely;and enrichingtheirexperiencebyreviewingpriorexperiencestoderivenew insightsandlessonsfrommistakes.

3.47

Inthefinalreport,morespecificrecommendationswillbemadeabouthowbestto developexpertiseinsocialwork,recognisingthatthistakestime(tenyears accordingtosome).Inthisrespect,theprofessionhasbeenhamperedin establishingexpertiseknowledgeandskillbasebytheSeebohmreformsin1971. Thecentralaimofthesereformswastheexcellentoneofcreatingaunified professionandaunifiedservice.Besideshavingastrongpresenceinvoluntary organisations,socialworkhaddevelopedinanumberofdifferentspecialismswithin thepublicsector:probation,PoorLawwelfareofficers,psychiatricsocialworkin hospitalsandchildguidancecentres,mentalhealthofficersinlocalauthorities, almoning(medicalsocialwork),andchildcareofficers(createdbytheChildCareAct 1948). Itbecameclearthatthesedisparateroleshadmanyaspectsofexpertiseincommon, aswellasspecialistelements.Moreover,theprovisionofsomanydifferentservices meantthattherewereduplicationsandgapsintheprovisionofservices.The creationoftheSocialServicesDepartmentsin1971aimedtoproduceamore efficientwayofprovidinghelpsothatfamilieswouldhave,preferably,onlyone
74 75

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Oakeshott,M.(2001),TheVoiceofLiberalLearning,p33 Klein,G.(2000),SourcesofPower:HowPeopleMakeDecisions

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socialworkermeetingalltheirneeds.Thegenericaspirationsofthattimehavenow beenmainlyreplacedbyarecognitionoftheneedforspecialisms.

3.49

Asaresultofthisreform,manysocialworkersspendonlyashorttimeinfrontline practice,andthosewhodostaytherereceiveonlylimitedrecognitionoftheir growingexpertise.Thisproblemhasbeennotedandrectifiedintherelated professionsofnursingandteaching.

3.50

Figure3.1SocialWorkTaskForce(2009),BuildingaSafe,ConfidentFuture,p40 TheSocialWorkReformBoardhasstressedtheneedforanalternativetothe managerialroutetopromotionandthisreviewwillbelookingatthediversewaysin whichexperiencedsocialworkerscandevelopacareerthattakesthemtovery seniorlevelsintheorganisationwithoutlosingtheirprimefocusondeveloping professionalexpertise.Thereissuchapotentialrangeofknowledgeandskillsthat wouldimprovetheservicetochildrenandfamiliesthatitseemstothereviewthatit isunrealistictoexpectallfrontlinestafftohavetheabilitytoacquireallofit.Itmay bedesirableforsocialworkerstobeabletousespecifichelpingmethodsbutsuch expertisecannotbeacquiredjustfromreadingamanualorattendingatraining course.Ongoingsupervisionorcoworkingwithamoreskilledcolleaguewillembed theexpertisemorethoroughly. Amajorprobleminmanylocalauthoritiesisrecruitingandretainingstaff.Evidence fromstudiesofwhysocialworkersleaveindicatethattheproblemwouldbe reducedifstaffwerewellsupportedinhandlingtheemotionalandcognitiveaspects

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oftheworkmoreeffectively,giventhechancetodevelopexpertise,andopportunity toworkwithchildrenandfamiliestohelptheminsteadofbecomingmainlycase managerswhoassessandreferon.

3.52

Perhapsthetraditionalviewofthefrontlineworkercarryingacaseloadwitha modestamountofsupervisionneedstobemodified.Analternativemightbetosee thefrontlineworkerasakintoajuniordoctorwhohasaccesstoconsultationand ongoingtrainingfrommoreexperiencedcolleaguesandcancontactaspecialist whendealingwithnovelproblems. Developinganationalnetworkofseniorprofessionalgradesmightalsoprovide valuablesupporttoaChiefSocialWorker,thecreationofsuchapostbeing somethingthisreviewhasbeenaskedtoconsider,andisconsideredinchapterfour.

3.53

Conclusion
3.54 Childrenneedsocialworkerstohaveawiderangeofknowledge,skillsandvalues.In lookinginmoredepthinwhatisrequired,thereviewhasbeenstruckbythescaleof relevantskillsandknowledgerequired/necessaryandquestionshowmuchan individualcanachieve.Researchprovidesawealthofevidencetoinformevery aspectofthework,withconsiderablematerialonspecialisttopicsthatworkerswill notoftenencounter.Inapplyingthisknowledge,skillsareneededinengagingand motivatingchildrenandfamilymembersandthesetaketimeandcriticalreflection insupervisiontodevelop. Underthesecircumstances,thereviewquestionswhetheritisrealistictoexpect eachfrontlineworkertocoversuchawiderangeofskillsandknowledgeand whetherthecurrentcareerstructurereflectsorvaluesthetimeittakestodevelop expertise.Inthenextphaseofthereview,considerationwillbegiventoreforming thecareerstructureofsocialwork,endorsingbutbuildingontherecommendations oftheSocialWorkReformBoard.

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ChapterFour:Managingfrontline socialwork
Introduction
4.1 Onewayofsummarisingtheproblemsidentifiedinthisreviewsfirstreportisthat childrenssocialcaredepartmentsarepayingsomuchattentiontocomplyingwith guidanceandregulationsfromGovernment,andtomeetingthecriteriathatthey considerwillproduceagoodratingfromOfsted,thattheyarepayinginsufficient attentiontothechildrenwhoneedtheirhelp.Theaiminthischapteristoaddress thequestion:whatwouldmanagersbedoingiftheywerefocusedonmeetingthe needsofchildren?Chapterfivethenconsiderswhatimplicationsthishasforthe regulationofchildrenssocialcareandtheotherpartsofthemultiagencysystem andtheinspectionprocessusedforjudgingtheirperformance. Thesystemsapproachdrawsattentiontothewaythattheperformanceinanypart ofthesystemisinfluencedbyoutsidefactors.Whilethischapterdiscusseshow managerscanbestsupportfrontlinestaff,itisnecessarytoacknowledgethattheir actionsarealsoshaped,inbothpositiveandnegativeways,byfactorsoutsidetheir directcontrol,forexample,theinfluencesoftheregulatoryandinspectionprocesses arestrong.Fundingisanobviousconstraintonwhatitispossibleforthemtodo, andtheimmediatefuturelooksdauntinginthisrespectasbudgetsarecutallround, notonlyinlocalgovernment,butalsointheotheragenciesinvolvedinchild protectionwhosewithdrawalfromsomeservicesmayincreasedemandon childrenssocialcare.Thischapterinpartoutlineswhatwouldbeideal,butalso looksatwhatstrategiescanimproveworkconditionsinconstrainedeconomic circumstances. Thechapterbeginsbyconsideringhowmanagerssupportfrontlinestafftoachieve relationshipbasedworkwithfamilies,withahighlevelofcriticalreflectiontotest theirthinking,drawingonrelevanttheoryandresearch,andhowtheycancreatea workenvironmentthatencouragesthedevelopmentofexpertise. Theoverallcultureofasystemishighlyinfluentialonperformance.Asthefirst reportnoted,manyareworkinginculturesthattheyexperienceasblaming,andthis makesthemdefensiveintheirpractice,fearingcriticismiftheyapplygoodpractice principlesinwaysthatdeviatefromwhattheyperceivetobetherules.Thishas beenreportedtothereviewbymanagersaswellasfrontlinesocialworkers.This defensivenessthencontributestopracticethatfailstotakeaccountofthevaried needsofchildren.Possiblestrategiesforcombatingthisarediscussed. Besidessupportingfrontlinestaff,managershaveadutytomonitorthefunctioning oftheorganisation,tocheckthatresponsibilitiesarebeingmetandmoneyisbeing spentwell,andtoidentifyemergingproblemsandseeksolutions.Theneedfor

4.2

4.3

4.4

4.5

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performancedataandfeedbackisthereforeamatterforconsiderationandis discussedindetailinchapterfive,becauseitisequallyrelevanttothewayinwhicha multiagencychildprotectionsystemmonitorsitself. 4.6 Finally,thischaptercoverssomedevelopmentswithinthesocialworkprofession thatwillinfluencefuturedesign:thepilotingofsocialworkpracticesthattakessocial workoutsidelocalgovernmentsdirectmanagement;thenewCollegeofSocialWork formedontherecommendationoftheSocialWorkTaskForce;andthepossible creationofaChiefSocialWorker.

Managingtime
4.7 Evidencesubmittedtothereviewshowshowthesizeofcaseloadsisasignificant problemformanyand,clearlythetimeavailableforacasehasamajorimpacton howwelltheworkcanbedone.Controllingtheinputthatgoestosocialworkteams isonestrategyforcreatingareasonableworkloadandchaptertwodiscussedways thatthereferralratetochildrenssocialcarewasbeingreducedinsomeplaces. However,thereisstillinmostplacesahighrateofreferralthat,combinedwith financialconstraintsandproblemsinretainingexperiencedstaff,createswork conditionsthatmakeithardforthemostexperiencedandmotivatedworkerto achievethequalitytheywantwhenworkingwithafamily. Helpingsocialworkershavesufficienttimeforgoodqualityworkisnotjustamatter ofdealingwithsizesofcaseloadsbutalsooflookingatthetaskstheydoand consideringwhethertheycanbestreamlinedatallthroughreducingduplicationor delegation.SomelocalauthoritiesarereviewingtheICSrecordingsystemandre designingittominimiseduplicationofdataentry.Thecurrentpracticeofhaving severaldifferentformstocompleteoneachcaseissomethingthereviewis examiningtoseewhetherthereareefficiencygainswithoutlossofqualityin designingformsthataremultifunctional.Exampleshavebeengiventothereview oflocalauthoritiesdelegatingsomeofthesocialworktasks,forinstance,bygiving administratorsabiggerroleinkeepingrecordsandhavingstafftoworkwiththe children,allowingthesocialworkertofocusontheadults.Helpingworkers prioritisethedemandsontheirtimeisanotherstrategyforhelpingintime management,andthisplaysacrucialpartinwhethertheworkischildcentredor processdriven. Thereviewrecognisesthecriticalrolethatfirstlinemanagershaveincreatingthe culturalandpracticechangesitwilladvocate.Theyhavethekeyroleinsupporting individualsocialworkersintheirpractice,allocationofwork,facilitatingsocial workersindevelopingtheiranalyticalskills,identifyinglearningneedsandcreating reflectivethinking.Managerswillneedtobeprovidedwithsupportandtraining thatprovidesthemwiththesupervisionskillsthatenablereflectivepractice,skills thatenable,encourageandquestiontheevidencebaseonwhichtheirsocial workersarepractising.

4.8

4.9

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Supervision
4.10 Professionalsupervisionisacoremechanismforhelpingsocialworkerscritically reflectontheunderstandingtheyareformingofthefamily,ofconsideringtheir emotionalresponseandwhetherthisisadverselyaffectingtheirreasoning,andfor makingdecisionsabouthowbesttohelp.Asdiscussedintheprecedingchapter,the availabilityandqualityofsupervisioncontributestothequalityofreasoningthat socialworkerscanachieve.Withouttimeandencouragementtostopandreview theirwork,socialworkerswilloperateataprimarilyintuitivelevelwiththe associatedrisksofbiasintheirreasoning76. TheSocialWorkTaskForcestressedtheimportanceofsupervision77: Professionalsupport:supervisionisanintegralelementofsocialworkpractice notanaddon.Throughitsocialworkersreviewtheirdaytodaypracticeand decisionmaking,plantheirlearninganddevelopmentasprofessionals,and workthroughtheconsiderableemotionalandpersonaldemandsthejoboften placesonthem. Thetwomajorfunctionsofsupervisionarethemanagementoversightofcaseloads andtheprofessionalcaseworksupervisionofpractice.Bothareimportantandserve differentpurposeswithintheoverallfunctionoftheorganisation.Theevidencethe reviewhasreceivedindicatesthatmanagerialoversightoftenpredominatesandthat toolittleattentionisgiventoprofessionalsupervision.Warningsofthisimbalance havebeensoundedformanyyears.In1992,Howecommentedthat: .Britishsocialservicesdepartmentsareexperiencingaheighteningofthe tensionbetweennotionsofprofessionalexpertise,linkedtoambitionsof preventionandpostinvestigativetreatment,andthemanagerialconcernsofa hierarchicalbureaucracyattemptingtorespondtoaheavybombardmentrate, fearfulofchildabusescandalsontheirdoorstep.Thereisgrowingconcernthat thetensionsarebeingresolvedinappropriatelybytightermanagerialcontrol overpractitioners,withmoreemphasisonproceduresforchildprotectionbut withlesssupportforenhancingprofessionaltasks.Taskssuchasworkingwith difficulttoengageparentsandtryingtoimproveparent/childrelationshipsare beingmovedfromthecentretothemargins78. Thereviewisconsideringwhetherthetworolesofmanagerialoversightand professionalsupervisionneedtobeseparatedsothatbotharedoneproperly.A
KoehlerD.&HarveyN.(eds)2007BlackwellHandbookofJudgmentandDecisionMaking,Oxford, BlackwellPublishing 77 SocialWorkTaskForce(2009),BuildingaSafeandConfidentFuture,p29(availableonlineat http://www.education.gov.uk/publications/eOrderingDownload/011142009DOMEN.pdf) 78 Howe,D.(1992),Childabuseandthebureaucratisationofsocialwork,TheSociologicalReview,40, pp491508;thiswascorroboratedina1996studyofsupervisionsbasedonreporteddata:Rushton, A.,&Nathan,J.(1996),Thesupervisionofchildprotectionwork,BritishJournalofSocialWork,26, pp35774
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divisionofcareerpathwaysatthispointwouldalsocontributetotheestablishment ofaprofessionalcareerpathway,asrecommendedbytheSocialWorkReform Board,andendorsedintheprecedingchapterofthisreport.

Professionaldevelopment
4.13 Professionaldevelopmentencompassesfarmorethanreceivinggoodsupervision. ThenatureofexpertiseimplicitinthecapabilitiesmodeloftheSocialWorkReform Boardenvisagesprofessionaldevelopmentasanongoingaspectofprofessionallife, whichthisreviewstronglyendorses.Theorganisationcanfacilitatecontinual professionaldevelopmentby: encouragingongoinglearningnotjustthroughformalcoursesbutbyhelping socialworkersmaximisetheirlearningfromtheircaseworkthroughproviding thekeyingredients:experience,feedbackonoutcomes,andtimetothink anddrawoutthelessons; providingaccesstorelevantresearchandsummarisingkeymessages;and supportingspecialisttrainingininterventionmethodsandsubsequentclinical supervisioninusingthesemethods.

4.14

Therehasbeenaframeworkforpostqualificationprogrammesforqualifiedsocial workersinplacesince1998,withanewframeworkbeingagreedinJanuary2005. However,itisstillnotplayingabigenoughroleinprofessionaldevelopment.Social workersmustrenewtheirregistrationwiththeGeneralSocialCareCouncilevery threeyearsandtodosomustconfirmtheyhavecompleted90hoursofpost registrationtrainingandlearning,whichincludesarangeofactivities,including attendanceatcoursesandconferences.AcrossallrespondentstoaChildrens WorkforceDevelopmentCouncil(CWDC)study,onlyonethirdhadcompletedany furtherpostqualificationtrainingduringtheircareers,thesemostlybeingin childrensservicesandinmentalhealthwork.Thereisalsotheexpectationthatall newlyqualifiedsocialworkersshouldachieveaspecialistlevelpostqualifyingaward intheirfirsttwoyearsofpracticeandtheproportionwashigherforthosewhohad qualifiedmorerecently. Anothercrucialaspectofprofessionaldevelopmentisanorganisationalculturethat notonlyprovidesaccesstoresearchbutvaluesitandmakesitfeasibleforworkers touseitwell.Itisunrealistictoexpecteverysocialworkertohavethetimeto searchforresearcharticlesandtheskilltoappraisetheresearchmethodsusedin ordertoformaviewofthereliabilityorvalidityofthefindings.Somemechanism forprovidingsummariesthathavecriticallyreviewedresearchisneeded,whether localornational(orindeedinternationalsincethereareanumberofwebsites providingthisservice). Ifresearchevidenceistoenhanceprofessionaljudgmentitwillrequirelocal authoritiestoencouragealearningculture.Ifsocialworkerssimplyuseevidenceto shoreuptheirinitialassumptions,ratherthantounderstandtherangeand complexityofrelevantfactors,sucharesourcemayexacerbatepoorpractice.In

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short,accesstotheevidencebasemustbesupportedbyorganisationaland professionalresearchliteracy. 4.17 Similarly,akeyelementofprofessionaldevelopmentneedstoincludetrainingin thosemethodsofinterventionthathaveevidenceofsomeeffectiveness.Professor StephenScottssubmissiontothereviewrecommendedthat: socialworkdepartmentsneedtotraintheirownstaff,andcommissionoutside agencies,todeliverparentinginterventionsthatwork.Thisisthecentralcoreof effectivesocialworknotaperipheraladdonorminorissue. Currently,fewsocialworkershavedetailedtraininginanyevidencedmethodand thisseriouslylimitstheirabilitytohelpchildrenstaysafelywiththeirbirthfamily. Butprovidingsuchtrainingisalongtermstrategy.Itisnotenoughtosendsomeone onatwotothreedaycourse.Developingtheskilltousethemethodinreal situationsrequiresongoingsupervision.Thisisanotherareawherethe developmentofseniorprofessionalgradeswouldbeuseful.Theseseniorsocial workerscouldprovidetheongoingtraininginamethodneededtokeepitfaithful enoughtothemodeltohavesomechanceofsharingitssuccess.

Tools
4.18 Onewayformanagerstoseektoimprovepracticeistoprovidetools,equipment, andresourcesforthestafftomakeiteasierforthemtocarryouttheirtasks.Inchild andfamilysocialwork,amajordevelopmentinthelast30yearshasbeenthe provisionofinformationprocessingtoolstohelpsocialworkersmakeassessments anddecisions.Therelativeautonomyoftheprofessionalinthe1970sisnow radicallyalteredbythedegreeofmanagerialandstatutoryguidance,oversightand provisionoftoolstoimprovepractice,e.g.thesetofassessmentformsinICSandthe detailedproceduressetoutinWorkingTogethertoSafeguardChildren.Anysuch aidsneedtobeseennotaspassiveobjectsbutasactivecontributorstotheoverall qualityofperformance.Therehas,todate,beeninsufficientattentionpaidto whetherthesetoolsarehavingtheintendedbeneficialeffectsonimproving assessmentanddecisionmaking,orcreatingadversefactorsthatmakeitharderfor socialworkerstoworktoahighstandard. Theimpactoftechnologyonhumanperformanceiscomplex.AsWoodsetal79point out,theconventionalviewisthatnewinformationtechnologyandautomation createsbetterwaysofdoingthesametasks.However,itismoreaccuratetosay thatanynewtechnologyisachangefromonewayofdoingthingstoanother.It altersthetasksthathumansareexpectedtoperformanditcan,insubtleand unexpectedways,influenceanddistortthewaytheycancarryouttheirpartofthe process.

4.19

79

Woods,D.,Johannesen,L.,Cook,L.,&Sarter,N.(1994),BehindHumanError:CognitiveSystems, ComputersandHindsight,p163

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4.20

Normanarguesthatthetraditionalapproachofdesignershasbeenmachine centred,concentratingonautomatingthepartsoftheprocesstheyknowhowto workonandleavingittothehumanoperatortocopewiththeresultingchanges.In contrast,ahumancentredapproachstartsbyconsideringtheirneeds.Designers shouldbeginbyaskingfirst,whatarehumansgoodat?,andsecond,whatare machinesgoodat?,beforedecidinghowtohelphumansimprovetheirperformance. Heconcludes: weneedinformationprocessingsystemsthatcomplementourthinking, reasoning,andmemoryskillsascomfortablyasthecalculatorenhancesour arithmeticskills.Thebestofthesetechnologiesprovideuswithrich informationandleavecontroloftheprocess,andwhattodowiththeresults,in ourhands80. Thereviewhasbeengivensomeinterestingexamplesoftoolsthathavebeen designedthroughdetaileddiscussionwiththosewhoaregoingtousethem.The LondonBoroughofTowerHamletsundertookamajorreviewin2010ofitsuseof theICSsystemtomakeitmorestreamlinedandlessonerousonfrontlinestaffand designedanewassessmentform(AnnexB).Withafundamentalreshapingofthe initialandcoreassessmentexemplarsanditspositiveimpactonchildfocussed practice,thefollowingkeyquestionhasbeenconsideredisthereanalternative frameworkforassessmentofchildrenandtheirfamiliesandwhatwouldthislook like? Embarkingonthiswork,TowerHamletsheldaseriesofworkshopsanddevelopment sessionswithfrontlinesocialworkpractitioners,operationalandseniormanagers,to reviewandcriticallyevaluatecurrentpracticeandtoconsiderhowthecontinuumof interventionthroughassessmentcouldbebothstreamlinedandimprovedtofocus onthechild.Thefollowingthemesintheworkshopsemerged: prescriptionledtoadescriptionofthechildandfamilycircumstancesas opposedtoanunderstandingofthefamilyandthechild(ren)andhowthe familywasfunctioning; thatthedescriptionscapturedoftencontainedsnippetsofhistorynotina chronologicalformat; thechildsstorywasoftendeconstructedorabsentacrossthedifferent domainsandnotacentralfeature; pressuresandafocusontimescalesmeantsocialworkerswerenotoften takingthetimetoplanandthinkthroughthefamilyissuessubsequently impactingonoutcomesforthechild;and theprocesstendedtobeengagedasanendtoitselfratherthanawayof practisingchildfocussedsocialwork.

4.21

4.22

TheformdevelopedbyTowerHamletsistheemergingthinkingregardinghowa differentapproachtoassessmentandunderstandingfamiliescouldbeconsidered.
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Norman,D.(1993),Towardhumancentreddesign,TechnologyDesign,p52

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Thedesignhasbeeninformedwiththefollowingprinciplesinmind: articulates,describesandunderstandsthechildsstory; apracticeframeworkthatisflexiblewithtimeframestobedeterminedatthe outset(withacleartimeframeforSection47childprotectioninvestigations); enhancesthesocialworkersunderstandingofthefamilyandfundamentally supportssocialworkanalyticalthinking,judgmentanddecisionmaking; aprocessthatsupportsanexplorationoftheinterplaybetweenhistorical factorsandthepresentsituationtoinformfutureplanningandinvolvement; facilitatesdirectworkwithfamiliesthroughenhancedpartnershippractice; genograms,ecomapsandapurposefulchronologicalunderstandingarekey requisites; onreceiptofthecompleteddocument,thefamilycanunderstandthe concernsthatthesocialworkerhasraisedwiththem; promotesafamilybasedassessmentandinterventionmethodologywithin anecologicalcontext; promotesandprioritisesinteragencyinvolvementintheworkundertaken; and reinforcedintheorganisationthroughpractice,supervision,quality assuranceandresearch.

4.23

Inthissectionontools,twoareasofpracticewheretoolshavebecomedominantin whatmanyseeasaproblematicwaymeritcloseattention:theICScase managementsoftwareandthedetailedproceduresintendedtoimprovethequality ofpractice.

TheIntegratedChildrensSystem(ICS)
4.24 Computershavealottooffer,buttheirusesofarhasbeenproblematic.ICS exemplifiesaninnovationthathashadamajor,unforeseenimpactonthewaythat frontlineworkisperformed.Althoughtherearevariationsinthedesignusedata locallevel,therearesomecommonproblemsinitsimplementation.Thewaythat organisationshave,untilrecently,dealtwithemergingproblemswiththesystemhas beenagoodillustrationofafailuretolearn.Therewasatendencytoblameany emergingproblemsonthesocialworkersusingICS,insteadofacceptingthatthe qualityofperformancearosefromaninteraction.ThedetailedstudiesofBelletal, WhiteetalandShawetalshowedconclusivelyhowinfluentialandhowdamaging thedesignofthesoftwarewas81.

Bell,M.,Shaw,I.,Sinclair,I.,Sloper,P.&Rafferty,J.(2007),TheIntegratedChildren'sSystem:An evaluationofthepractice,processandconsequencesoftheICSincouncilswithsocialservices responsibilities;White,S.,Hall,C.,&Peckover,S.(2009),ThedescriptivetyrannyoftheCommon AssessmentFramework:technologiesofcategorisationandprofessionalpracticeinchildwelfare, BritishJournalofSocialWork,39(7),pp11971217;Shaw,I.,Bell,M.,Sinclair,I.,Sloper,P.,Mitchell, W.,Dyson,P.,Clayden,J.&Rafferty,J.(2009),Anexemplaryscheme?Anevaluationofthe IntegratedChildren'sSystem,BritishJournalofSocialWork,39,4,613626

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4.25

Toreturntobasicprinciples,recordingisanecessarytaskandhasthreefunctions: individualcaseworkrecordstheactivityundertakenandtheinformation gatheredbyworkersonanindividualbasistoassess,inform,understand, reflectandplanforindividualchildrenandfamilies.Therecordshouldbethe recordforthechildinthefuturethatshouldillustratewhatdecisionswere madeandwhy.Itshouldalsoclearlytellthechildsstory.Therefore,records shouldprovideanaccuratereflectionofthechildsexperiences,historyand observations.Italsoprovidestheevidenceshouldtheworkeroragencybe heldtoaccountfortheirwork; performancemanagementanddatacollectionlocalauthoritiesshould collectinformationrequiredfornationalreportingpurposes,butitis importantthatdatacollectionanddataentryshouldnotbeover burdensomeforsocialworkers.Localauthoritiesshouldconsiderwhether thetimeandcosttoenterdataoverandabovetheminimumrequirementsis agoodandeffectiveuseofsocialworktimeandskillsandwhetherthedata collectedisrequired,usefulandenablestheauthoritytounderstandand managetheirperformance;and workforceandserviceplanningseniormanagersandcommissionersneed accessibleinformationforeffectiveworkforceandserviceplanningtoallow theirservicestoadapttochangingdemands.

4.26

4.27

LocalauthoritieshavebeengivenpermissiontomodifyICSasBaronessMorgan, thenMinisterforChildren,wrotetoDirectorsofChildrensServicesinJune2009: itistheresponsibilityoflocalauthoritiestodeterminehowICTsystemscan beusedtosupportthedeliveryofsocialcareservices.Thekeytestofthose systemsshouldbethattheysupporteffectivepracticeandimprovedoutcomes forchildren,youngpeopleandtheirfamilies82. BecausethereissubstantialevidencethattheICSdoesnotsupportprofessional judgmentandofteninhibitsefficientworking,thereisastrongcaseformanylocal authoritiestousethesepowers.Thedegreeofstandardisationimposedinthe currentsystemmaybesupportivetonovicesbutisnotlikelytoenhance professionallearningandskillandindeedmayerodeitsdevelopment83. TheICSremainsaverypoortoolformappingthechildsjourney.Theresearch carriedoutbyProfessorWhitesteamatLancasterUniversityandthepreceding evaluationoftheICSbytheUniversitiesofYorkandSouthampton84showthatthe
http://webarchive.nationalarchives.gov.uk/20100202100434/http://www.dcsf.gov.uk/everychildmatt ers/_download/?id=6169 83 Gilligan,P.(forthcoming)Decisionmakingtoolsandthedevelopmentofexpertiseinchild protectionpractitioners:arewejustbreedingworkerswhoaregoodattickingboxes?Childand FamilySocialWork 84 Shaw,I.,Bell,M.,Sinclair,I.,Sloper,P.,Mitchell,W.,Dyson,P.,Clayden,J.andRafferty,J.(2009)An exemplaryscheme?Anevaluationoftheintegratedchildrenssystem,BritishJournalofSocialWork AdvanceAccesspublishedApril8,2009,10.1093/bjsw/bcp
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currentdocumentationmakesitdifficulttoseethechild.Thishasbeenconfirmed inevidencesubmittedtothereview.Forexample,thereisnowhereinthecurrent systemforthechildtotelltheirownstory,orforthefamilyssocialhistorytobe effectivelysummarised.Instead,thereisanoverconcentrationonrepetitivedata entryandtherearemultipleprocessesandtransferpointsintheworkflowwhich requirethechildsstorytobecontinuallyretold.Thisencouragescuttingand pastingandtheprocessofrecordingtobeconsideredachore,ratherthanan integralpartofthework. 4.29 Feedbacktothereviewshowsconsiderableenthusiasmforrediscoveringfamily basedrecording,whilstpreservingthechildsuniquerecordwithinthefamily.Some suppliersareworkingonthis,butitisachallengewhentheyhavedesignedthe systemtoarigidspecificationwhichprecludesfamilyrecords.Thereisaconsensus thatgenogramsandchronologiesarecrucial,butasyettherehasbeenlimited successinprovidingthesewithinthecurrentpackages.Itisimportanttonotethat evenoptimallydesignedICTcannotreplacehumaneffortinthecraftingof meaningfulchronologies.Itcanonlysearchforincidentsandpresenttheminalist. Itcannotinterpretthese.Thisattentiontohumanfactorsisessentialinany subsequentsystems.Inthefuture,ICTdesignshouldmakefulluseofmixedmedia. Digitalstoriesandphotographs,forexample,couldbeembeddedinthechilds recordprovidingadditionalandmeaningfulinformationtothechildandsignificantly improvinguponwhatisavailablewithpaperdocuments.Thisrequiresa professionallyleddesignproject,involvingyoungpeople. ICSdoesprovideadegreeoforderinthecaserecordand,ifstrippeddown,could operateasadocumentrepository,pendingthedesignofamoresuitablesystemfor childrenssocialcare.Understandably,manyauthoritiesareanxiousaboutlosing thedocumentmanagementfunctionsprovidedbyICS.Whilstpaperfileshavesome limitedselforganisingfeatures,thesameisnotalwaystrueofelectronicdocuments whichcaneasilybemisfiledandwhereversioncontrolisvital.Someofthese featurescanbelocallyimprovisedinsomesites.Itisunlikelythatanyonesizefits allmodelofadaptationwillbepossiblebecauseofthedifferentteamconfigurations, servicestructuresandinteroperabilityissuesinlocalities.Thereisalsotheserious matterofpostimplementationsupportforauthoritieswithnoinhouseICT expertise,ifsoftwareadaptationsareundertakenoutsideofthesuppliercontracts. ManyoftheproblemscurrentlyexperiencedwiththeICSarerelatedtotherigidity oftheperformancemanagementregimeoperationalisedwithinit.Thisregimeisa potentsourceoflatentconditionsforerror85i.e.itcreatesthesystemicconditions whichmakeerrorsmore,ratherthanless,likelytooccur;forexample,rushedor incompleteassessmentdrivenbytheneedtomeettimescales.Itisthusmaking practicelesssafe.Accordingly,thematteroftechnologycannotbeseparatedfrom
Broadhurst,K.,Wastell,D.,White,S.,Hall,C.,Peckover,S.,Thompson,K.,Pithouse,A.,&DaveyD. (2009)PerformingInitialAssessment:IdentifyingtheLatentConditionsforErrorattheFrontDoor ofLocalAuthorityChildrensServices,BritishJournalofSocialWork(availableonlineat http://www.publicservices.ac.uk/wpcontent/uploads/broadhurstetal_2009performinginitital assessment_.pdf)
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thepracticemodel,norfromtheinspectorialandperformancemanagement systems. 4.32 ThissituationcontinuestoslowthepotentialprogressinreformingICS.Itis, however,difficultforauthoritiestochangetheirpracticemodelbecauseofthe perceivedandactualimpactofthecurrentinspectorialregime.Forexample,a numberofauthoritieshaveexpressedinterestinmovingtoamoreholisticformof assessment,ratherthanusingseparateformsforparticularactivities.However,they feelunabletodoso,becauseofaperceptionthatOfstedarestillinspectingagainst thepracticemodelembeddedwithinICS.Whereauthoritiesareusingadifferent theoreticalmodel,theyareenteringdatatwice.Ifsocialworkersaretomakebetter useofresearchandemergingtheory,theyneedtheflexibilitytochangethe recordingframeworktoo. Computersandcomputersoftwarehaveconsiderable,asyetunrealised,potentialto supportdecisionmaking.Therearemanyexamplesofexpertsystemsbeingused tosupportcomplexprofessionaltasks,e.g.intheairlineindustryandmedicine,and thereisalsoasubstantialbodyofresearchonthedesignofsafesystemsand organisations.Currentworkinhealthinformaticsunderlinestheimportanceofa sociotechnicalapproachtosystemsdesign86. Thenextphaseofthereviewwillexaminethewaysinwhichtheinspection frameworkcanbetterexaminehowthesystemisservingchildren(seebelow, chapterfive).Currentlymanyauthoritiesaretiedintocontractsforsystemsthey havepurchasedanddeveloped.Freeingthemselvesfromthemislikelytotakea variedamountoftimedependentonwhether: theyrelyuponthemfortheirdataandperformancerequirements; theircontractshavethemtiedintocertainarrangementsorcostagreements (changestothesystemarelikelytohaveimplicationsondatacollectionand businessesprocesses;itmightbesignificantlymorecomplexthanjust changingaform); theyhavedevelopedandchangedthemalreadytomakethemfittheir authorityneedsandfurtherchangesortweaksarelikelytoinvolvesignificant cost,timeanddevelopment;or anychangetosystemsislikelytoincurfurthertrainingcostsintimeand money.

4.33

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4.35

Ideally,localauthoritieswouldaudittheirownICSsystemstosee:
86

howeasilythechildsstorycanbeextractedfromthesystem; howefficienttheirfrontlineworkersfeeltheirsystemstobe(howtime consumingtheirindividualsystemsare); howeasilyitprovidestheinformationtheyneedtoinformdecisionmaking

See:Fish,S.,Munro,E.&Bairstow,S.(2008),LearningTogethertoSafeguardChildren:Developinga MultiAgencySystemsApproachforCaseReviews,Report9,London,SCIE;Munro,E.(2005)A systemsapproachtoinvestigatingchildabusedeaths,BritishJournalofSocialWork,25,pp53146

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andclearnextsteps;and howeffectivelytheexistingsystemrecordswhathelphasbeenprovidedto thechildandfamilyandwhatimpactthishashadonthechildssafetyand wellbeing.

Procedures
4.36 Proceduresarethesecondmajorexampleoftoolsforsocialworkerswherethe influenceonpracticehasbeenproblematic.Themaincriticismisthattheyhave becometooextensiveandaresodominatingpracticethatspacetoexercise professionalexpertiseisbeingseverelyreduced.Procedureshaveanumberof strengthsbuttheyalsohaveweaknessesandaclearerunderstandingofbothhelps inconsideringhowtoreviseand,inplaces,removethem. Themostobviousstrengthofproceduresisthattheyareawayofformulatingbest practiceincarryingoutatasksothatthewisdomofexperiencedstaffisreadily disseminatedthroughouttheorganisationandvariationinthequalityandtypeof servicereceivedisreduced.Proceduresarealsogoodastrainingtools,helping novicesgetstartedinlearningatask.Theycanenablenewcomerstogetonwiththe workquickly,givingthemsimplerulestofollowwithoutgoingthroughthelonger processofunderstandingwhythoserulesaresensible.Forexperiencedworkers, theyarevaluableasachecklisttousetowhenreviewingtheirwork,andparticularly helpfuliftheytendtobeinterruptedandhavetoleavethetaskforawhile. Proceduresplayacrucialrolewhenpeoplehavetoworktogetheronatask,enabling themtopredictwhateachotherwilldo,settingoutbasicrulesaboutrolesand tasks.Thisisevenmoreimportantwhenitisnotanestablishedteambutagroup whocometogetheronaparticularoccasion,asisoftenthecaseinchildprotection workwhencarryingoutanenquiryintoanallegationofchildabuse.Theextentof theguidanceinWorkingTogethertoSafeguardChildren(2010)isquestionedin chaptersixbuttheneedforsomeguidanceinthisaspectoftheworkis incontrovertible. Procedures,however,haveanumberofweaknesses.Thestrengthmentioned abovethatnewcomerscanquicklylearntofollowproceduresevenwhentheydo notunderstandthemisalsoaweakness.Itcanleadtopeoplejustfollowing proceduresandnottryingtobecomebetter: Procedurescanlullpeopleintoapassivemindsetofjustfollowingthesteps, andnotreallythinkingaboutwhattheyaredoing.Whenwebecomepassive, wedonttrytoimproveourskills.Whybother,ifallwearedoingisfollowing theprocedures?Sothechecklistsandproceduralguidescanreduceour motivationtobecomehighlyskilledatajob87. Anotherweaknessisthatproceduresarealwaysincomplete:
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Klein,G.(2009),StreetlightsandShadows:SearchingfortheKeystoAdaptiveDecisionMaking,p22

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Thereisalwaysadistancebetweenawrittenruleandatask.Itcanonlybe closedbyhumaninterpretationandapplication88. 4.41 Thiswasillustratedintheprecedingchapterwhendiscussinghowmuchmoresocial workersneededtobeabletodothanfollowingguidanceoncollectinginformation foranassessment.Mostoftheproceduresinchildprotectioninvolvedealingwith otherpeopleandrequiretheuseofrelationshipandcommunicationskills.When theorganisationdoesnotpaysufficientattentiontothelatterskills,thenprocedures maybefollowedinawaythatistechnicallycorrectbutissoincompetentthatthe desiredresultisnotachieved.Evidencesubmittedtothereviewshowsthatsome socialworkersfeelthattheskillandefforttheyuseinengagingcomplexfamiliesis undervaluedbytheirmanagerwhoseprimeinterestisincheckingthattheyhave completedforms. Thefinaltwoweaknessesareinterwoven:procedurescandealwellwithtypical scenariosbutnotwithunusualones,andanorganisationalculturewhereprocedural complianceisdominantcanstiflethedevelopmentofexpertise.Inchildandfamily socialwork,theneedsandcircumstancesofchildrenaresovariedthatprocedures cannotfullyencompassthatvariety.Effortstomakeprocedurescovermorevariety quicklyleadtotheproliferationofproceduralmanualsthat,becauseoftheirsize, becomehardertouseindailypractice.TheinquiryintothedeathofVictoriaClimbi foundthattherewere13documentscontainingpolicies,proceduresandguidance tostaffinrelationtochildservices89.Dealingwiththevarietyofneedisbetter achievedbysocialworkersunderstandingtheunderlyingprinciplesofgoodpractice anddevelopingtheexpertisetoapplythem,takingaccountofthespecificsofa childscase.TheworkofDreyfusandDreyfusonhowpeopledevelopexpertise showshowtheybuildupintuitiveunderstandingandtacitknowledge90.Theymay useprocedurestogetstartedasnovicesbutneedtomovebeyondthistoachieve mastery.Socialworkersinaculturewhereproceduralcomplianceisexpected,and deviationismetwithblame,arediscouragedfrombuildingupthatexpertise. Experiencedsocialworkerswhounderstandtheunderlyingprinciplesofgood practicecanfaceasituationwheretheyknowthatcompliancewithprocedures wouldentailviolatingthoseprinciples,whileviolatingtheprocedureswould,intheir expertopinion,beinthebestinterestsofthechild.Fromevidencesubmittedtothe review,itisclearthatthisscenarioisnotrare.Forsome,thecombinationofanxiety aboutviolatingproceduresinablamecultureandtheirmoraldiscomfortatnot actinginthechildsbestinterestshasbeenafactorindrivingthemawayfromchild protectionwork. Theintroductionoffixedtimescalesprovidesagoodexampleofhowawell intentionedreformcangotoofarandbecomedysfunctional.Timescaleswere
Dekker,S.(2005),TenQuestionsaboutHumanError,p136 TheLordLaming(2003),TheVictoriaClimbiInquiry:Report,1.60 90 Dreyfus,H.L.,&Dreyfus,S.E.(1986),MindoverMachine:thePowerofHumanIntuitionand ExpertiseintheEraoftheComputer
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introducedbecauseoftheevidencethatthecasesoftoomanychildrenweredrifting withnoclearassessment,plan,orhelpbeingoffered.Thebasicprinciplethat timelinessmattersissoundbutturningthisintofixedrulesof10workingdaysfor onestageofcasemanagementand35workingdaysforanothercreatesdifficulties forsocialworkerstryingtoprovideanindividualisedresponsetofamilies.Ten workingdaysmay,onaverage,beareasonabletimeframeforcompletinganinitial assessmentbutthataveragewillnotbebestforeveryone.Onechildmayneed assessmentwithinanhourbecausethereferringinformationindicatessuchahigh levelofdangerwhileanothermaybebesthelpedbyallowinglongertomakesense ofanunusualorcomplicatedsetofcircumstances.Besidesoverstandardising practice,havingtimescalesontheirownleadstotheundervaluingofotherkey practiceprinciples,especiallytheprincipleofmakinganaccurateassessment. 4.45 Thereviewisconsideringwhether,whenachildisreferredtochildrenssocialcare, theexistingassessmentshouldbecontinuedbysocialworkersratherthanthe currentsystemwhichstartsanewbureaucraticprocessofinitialandcore assessments.Currentpracticeisdominatedbyprescribedtimescalesbutthereview isconcernedthatthereshouldbeastrongerawarenessofbalancingthetimeliness withthequalityofassessmentsothatthespecificneedsofanychildcanbewell assessed.Timelinessmatters,butsodoesqualitysolocalarrangementsshould monitorforbothinsteadofhavingstatutorytimescales. Whatbedevilstheprescriptiveapproachistheconflictbetweentheverywide varietyofsituationsthatareencounteredand,hence,thevarietyofresponsesthat arerequiredifthechildslifeistobeimprovedandthewishtostandardisethe processesthatareused.Thisiswhytheaimofimprovingthesystemisrapidly confrontedwithacentralconundrum:howtoorganiseitsothatitcandisplay requisitevarietytheabilitytotailoreachresponsetotheneedofchildrenand youngpeoplewhilstensuringthatreasonablestandardsarebeingupheldacross theboard. Asdiscussedabove,thereisaclearneedtoimprovethecapabilitiesofsocial workerssothattheyarebetterabletoexerciseprofessionaljudgment.Sincethe ChildrenAct1989therehasbeenawelldocumentedexpansionofrulesand guidance.Inpartthishasbeenduetoanincreasedawarenessofspecificissuesbut italsoseemsthatrulesandguidancehavebeenissuedbecauseofalackof confidenceinworkforcecompetence.Thisispotentiallydamagingfortworeasons. First,toogreatarelianceonrulescreatestheillusionofcertaintyinasectorwhere uncertaintyprevails.Secondly,itleadstoanoverdependenceonprocesswhich diminishesprofessionaljudgmentandcreatesamindsetwhichseekspreformulated solutionstocomplexanduncertainsituations.Inthenextphaseofthereview,more attentionwillbegiventoclarifyingwhenrulesandprinciplesaremostappropriate. Onedifficultyinmovingtomorejudgmentbasedpracticeisthatitremovesa(false) senseofsecurityfromindividualsdealingwithuncertainsituationsinahighly punitiveculture.Insuchcircumstances,thedefenceIwasfollowingtherulesis verytempting.Developingmorescopeforprofessionaljudgmenttoimprovethe

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servicereceivedbychildrenrequiresreducingtheblamecultureanddevelopinga morerealisticunderstandingofwhatitmeanstomakejudgmentsinuncertain circumstances.Thepolicehaverecentlyadoptedasetoftenriskprinciples(Annex A)andthereviewwillconsiderwhethertheyshouldbegivenwiderendorsementby thechildprotectionsystemsincetheyconveyaclearaccountofgoodpracticein makingdecisionsinuncertaincircumstances. 4.49 Asmentionedearlier,theGovernmenthasalreadystartedtorelaxsomeoftherules andbureaucraticreportingrequirementsrelatingtotheperformanceframework andICT.Inrelationtoperformance,theGovernmenthasalreadyrevokedthe designationsofLocalAreaAgreement(LAA)targetsmeaningthatlocalareasno longerhavetoreportontheirperformancetocentralGovernmentandarefreeto droporamendthemiftheysowish.IthasalsobeenannouncedthattheNational IndicatorSetofperformancemeasureswillbereplacedwithasinglecomprehensive listofdatarequiredbycentralGovernment,givinglocalareasfarmorefreedomover themanagementoftheirownperformance.Thisprovideslocalauthoritieswiththe flexibilitytomoveawayfrompreviouslyprescribedspecificationsinordertoadapt theirsystemstosuitlocalneeds. Manyoftherulesforchildandfamilysocialwork,however,arecontainedinthe localproceduralmanualsdevelopedtoimplementthestatutoryguidanceof WorkingTogethertoSafeguardChildren.Aswillbediscussedinchapterfive,the reviewisworkingwithamultiprofessionalgrouptoconsiderhowtorevisethis guidanceand,whereappropriate,replaceruleswithprinciplesofgoodpractice. Inaddition,consultationswithsocialworkershasmadethereviewawarethatmany oftherulesandregulationswithwhichfrontlinepractitionersarefrustratedare actuallytheresultoflocalratherthannationalprescription.Asdiscussedbelow,the finalreportwillexaminehowandwhylocalprocedureshavesometimeshad unforeseen,negativeimplicationsforpracticeandhowamoreadaptablesystem, capableoflearningfromitspractitioners,canbeencouraged.

4.50

4.51

Journeyauthorities
4.52 Thereviewisworkingwithanumberofauthoritiesthataredemonstratingthetype ofsystemiclearningandadaptationthatthereviewwishestoencourage.Theyhave identifiedproblemsintheexistingwayofworkingand,drawingontheoryand research,haveformulatedwaysofimprovingpractice.Thedetailsofeachauthority aregivenbelow.

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ReclaimingSocialWorkinHackney
ReclaimingSocialWorkisaprogrammedevelopedintheLondonBoroughofHackney,to improveservicesforchildrenandfamiliesrecognisingsocialworkasachallenging professionrequiringcomplexskills,deepprofessionalknowledgeandastrong understandingofitsevidencebase.CentraltothechangeshasbeenthecreationofSocial WorkUnitsinwhichsocialworkersfunctionaspartofsmallmultiskilledteamheadedbya consultantsocialworker,whohassomemanagerialresponsibilitiesandoverall responsibilityforcases.Theteamsalsoincludeaqualifiedsocialworker,achild practitioner,aclinician(onepertwounits)andanadministrator.Anindependent evaluationfoundtheapproachto: supportreflectivelearningandskilldevelopmentthroughitsshared approachtocasemanagement; fosterasenseofopennessandsupport; reestablishtheprimaryfocusofsocialworkonthefamily;and allowsocialworkerstospendmoretimewithfamiliesbypassingon administrativetaskstotheadministrator. Resultshaveshownthattherearenowlowerratesofchildrenbecomingthesubjectofa ChildProtectionPlanforasecondorsubsequenttimeandfewerlookedafterchildren. Theinitiativehasalsoshownanoverallcostsavingofchildrenssocialcareof4.97%due to: areductionofthenumberofchildrencomingintocare; a55%fallinstaffdayslosttosickness; placementstability;and verylownumbersofchildreninresidentialcare.

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BathandNorthEastSomersetleanreview
BathandNorthEastSomerset(BANES)havebeenworkingonareviewoftheirsocialcare processes,includingsafeguarding,toobtainanendtoendviewofthesystem.Thereview teamhaveassembledateamoffrontlinepractitionerswhoconsiderandanalysethe interactionstheyhavewiththechildandfamily,thenatureoftheindividualdemandand whatactionwastakeninresponseandtheimpactoftheseontheexperienceofthechild. Findingshaveincludedthefollowingandwillinformaredesignofservicesaimedat improvingoutcomesforchildren: inconsistenciesinthehandlingofsomecasesandtheconsequentfailureto alwaysdrawouttherightinformationaboutneeds; theneedtoensurethatuniversalserviceshaveaccesstoconsistentrisk managementexpertiseinordertoavoidprofessionalanxiety,leadingto inappropriatereferralstosocialcare; areluctanceofprofessionalstodeescalateonceacaseisinthesocialcare system;and duplicationbetweenservicesandburdensomerecording,whichdoesnot alwayscapturethenecessaryinformationaboutthechild;and difficultiesingettingspecialistinputwhenrequired.

TheKnowsleyApproach
Since2007,Knowsleyhavebeenonanimprovementjourneythatadoptedasystems approachtoredesigningthestatutorysafeguardingservices.Theyhavedevelopedarobust partnershipapproachtothresholdsforreferralsandinterventionbothatanoperationaland strategiclevel,includingthecolocationofthechildrenssocialcaredutyarrangementsand theCommonAssessmentFrameworkteam.Thesedevelopmentswereunderpinnedby needsanalysisandresearchundertakenbyLancasterUniversityandacomprehensive independentreviewofchildprotectionpractice. In2010,OfstedjudgedsafeguardinginKnowsleytobegoodwithoutstandingcapacityfor improvement.Takingthefeedbackfromthisinspectionandthelearningfromseriouscase reviews,Knowsleydecidedtotakeitsreformsastagefurther,withaspecificfocuson frontlinepractice.TheapproachthatisnowbeingtakeninKnowsleyistoundertakea commissionintochildprotection,lookingathowsocialcare,thepolice,healthservices, educationandearlyyearssettingsinteractsystemicallyandhowthisinteractionimpactson thosechildreninneedofprotection.Further,itwillexaminethenatureandeffectivenessof feedbackloopsinthesystem,theroleoftheauthenticvoiceandthatofemergencelinked totheimpactofunintendedconsequences.

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TheFamilyRecoveryProjectandremodellingsocialworkinWestminster
TheFamilyRecoveryProject(FRP)isacolocatedmultiagencyteamincorporatingAdultand ChildrensServicessupportedbyanintelligencefunction.ItusestheThinkFamilyapproach, workingwithfamilieswhohaveahistoryofnonengagementwithservicesorwhere,even withmultiagencysupport,positivechangehasbeenlimitedornotsustained.FRPworkto improvetheexperienceofboththefamilies,andthecommunitiesinwhichtheylive,working inatargetedandphasedway,includingacontractwithconsequences(FamilyCarePlan). Yearoneresearchhasindicatedthatforevery1spentonFRP,2.10incostsisavoidedby thepublicpurse(WestminsterCityCouncilfigures). TheRemodellingSocialWorkpilotisanexampleofearlyinterventionandinnovative frontlinepractice.Itaimstoimproveoutcomesthroughenablingsocialworkerstoundertake agreateramountofdirectworkwithchildrenandundertakeearlierandmoreeffective identificationofneedandjointassessmentwithkeypartners,bycolocatingsocialworkers withinuniversalsettings.

ManagingreferralsinTowerHamlets
TheIntegratedPathwaysandSupportTeam(IPST)inTowerHamletsmanagesthefront doorforchildrenssocialcare.Itsmainfunctionistotriagecontactsandreferrals,utilising expertknowledgetosignposttootherserviceswherethecaseisnotaccepted.Itissocial workledandmanagedwithmultidisciplinarypartnersbeingpartoftheteam.IPSTprovides generaladviceonchildprotectionissues,includingtootherprofessionals,suchasteachers, andhasplayedamajorroleinmanaginganxietyoverreferrals.Againstabackdropofa2,393 annualincreaseincontactsbetween200809and200910therehasbeenareductioninthe percentagethatprogresstoreferralfrom32.5%to15.9%withinterimfiguresforthisyear showingtheriseincontactscontinuingbutthereferralrateremainingsteady.IPSThas developedamuchimprovedandmoredynamicworkingrelationshipwithotheragencies, suchasthepolicePublicProtectionDeskwithregularstafffacetofacecontactandimproved andmorepurposefulsharingofinformation.Thishasledtoamoreconsistentand commensurateapproachtocontactsandthereforereducestheproportionofcasesmade subjecttoreferrals.

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SignsofSafetyinGateshead
GatesheadhasbeendevelopingSignsofSafetyoveranumberofyears,followingthecreation ofreferralandassessmentteamswhohaveakeyroleinassessingriskandneed.Gateshead hasgraduallyincreasedthenumberofstaffworkingtothemodelandthenumberof processeswhereitisapplied,tothepointwhereitisnowusedacrossthefullrangeofits interventions.Thisincludes: assessment; directworkwithchildrenandfamilies; asatoolforreportsandplanning; tounderpin/facilitatecasediscussions;and caseconferencesandmultiagencymeetings. Gatesheadhasfoundthatithasbroughtaboutarealsenseofprofessionalsworkingalongside childrenandfamiliesandactivelyinvolvingthemintacklingandfindingsolutionstotheir problems.Ithashelpedthemtoembracearangeoftoolsthatensurethechildsvoiceis centraltoassessments. RedesigningsystemsinCumbria CumbriaisaimingtodeliverchildrensservicesinaradicallydifferentwaythroughitsBetter forChildrenProject.Areviewteam,usingasystemsthinkingapproach,hasanalysedcurrent systemsandprocessesandtheireffectivenessinmeetingtheneedsofchildren,youngpeople andfamilies.Theteamhasdevelopednewmeasures,whichincludewhethertheassessment ofneedandinterventionsdeliveredasaresultwererightfirsttimeandifthetimescalesfor deliverywerewithintheshortestpossibletime.Thefindingsincluded: only30%ofcasesweredeemedtoberightfirsttime; thereweremultipleassessmentswith63%ofcasesbeingrereferrals; systemrequirementslimitfacetofacecontactwithserviceusers; ICSdrivesratherthansupportspractice;and 66%ofworkundertakenwaswasteactivityprescribedbythesystem. Cumbriaisnowworkingwithpartnersinredesigningthesystemtorefocusontheneedsof serviceusers,doingonlythevaluework,recordingwhatisnecessaryandensuringcontinuity ofcaseownership.Theaimistodevelopanewmodelwhichisscalablecountywide.

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4.53

TostarttoencouragechangethereviewhasbeenworkingwiththeGovernmenton howtogivelocalsystemsgreaterflexibilitytokeeptheirfocusonhelpingchildren. Cumbria,Westminster,Knowsley,GatesheadandHackneywanttomakelocally drivenchangestotheassessmentprocessesthatseektogivegreaterautonomyto frontlinesocialworkers.Specifically,thechangesproposedwouldfocusonallowing moreflexibletimescalessothatsocialworkerscanexercisetheirprofessional judgmentmoreeffectivelytoimproveoutcomesforvulnerablechildren.Subjectto theiragreementtotheconditionsofthetrialwithMinisters,thetestingbythese authoritiesofamoreflexibleassessmentprocesswouldlastforsixmonths. Evidencefromthistrialwouldinformanyrecommendationsthatmaybemadein thefinalreport.Thetrialwilllastbeyondtheperiodofthisreviewandtheevidence availableattheendofsixmonthswouldbeconsideredbytheGovernmentwhen respondingtothefinalreport.

Thelocalauthoritieshaveproposedthetemporarysuspensionofthefollowing requirementsofthestatutoryguidanceWorkingTogethertoSafeguardChildren: Cumbriathe10workingdaytimescaleforinitialassessment;the35workingdaytimescale inwhichtocompleteacoreassessment;therequirementtoholdInitialandReviewChild ProtectionConferencesintheircurrenttimescalesandthe10workingdaytimescaleforthe firstmeetingofthecoregroup; Knowsleytherequirementtocarryoutachildprotectionconferencewithin15working daysofthestrategydiscussion; Gatesheadtherequirementtocarryoutaseparateanddistinctinitialassessment(within 10workingdays)andthenacoreassessment(withinafurther35workingdays); Hackneythedistinctionbetweeninitialandcoreassessments;thetimescalesfor completionofassessments;andthestatutorytimescalesforcoregroupsheldwhenachild issubjecttoachildprotectionplan; Westminstertherequirementtocarryoutaninitialassessmentwithin10workingdays; therequirementtoconveneanInitialChildProtectionConferencewithin15workingdaysof therelevantstrategymeeting.

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Themediaandthepublic
4.54 Aswellasbeinginfluencedbytheovertandcovertculturalmessagestheyreceive fromwithintheirorganisation,socialworkersarealsoinfluencedbythemessages theyreceivefromoutsidetheirorganisation.Manyprofessionals,inthepast,have reflectedontheclimateoffear,blameandmistrustthatseemstobeendemicwithin thechildprotectionsystem91.ThereportoftheSocialWorkTaskForcehighlighted socialworkersconcernsaboutthewayinwhichtheprofessionisreportedoninthe mediaandtheimpactofthisonrecruitment,moraleandpublicperception92.This canbesaidtocontributetodisproportionateresponsestorisk93,whichhelpto underminepublicconfidenceintheprofessionandputschildrenatgreaterrisk.The lastreportshowedhowreportingcanhaveunintendedconsequencesontheway thesystemfunctions,forexample,byalteringreferralpatterns,creatingspikesin demandandincreasingthresholds94.Thustherationaleforimprovingpublic confidenceinthechildprotectionsystemisnotjustaboutgettingamessageacross, butaboutgettingtherightmessageacrossstrategicallytoenhancethewaythe systemfunctions. Thereview,workingwiththeCollegeofSocialWork,isaddressingtwoissues: Howtohelpthepublicgainabetterunderstandingofthecomplexity,uncertainty andemotionalchallengeinherentinchildprotection: aclearnarrativethatdescribesthecomplicatednatureofsocialwork, buildingontheworkoftheSocialWorkTaskForce,isindevelopmentforuse bychildprotectionprofessionals,thoserepresentingtheminthemediaand thosereportingontheirwork.Thisshouldrecogniseissuessuchas: o theemotionalandmoraldilemmasthatareinherenttomaking difficultdecisionsaboutchildrenandfamilies; o thesizeandvarietyofsocialworkerscaseloadsandfrank acknowledgementofproblemsinthesystem; o therangeoftoughdecisionsthatchildprotectionprofessionalshave tomake; o thefearthatsomehaveexpressedaboutdiscussingsocialwork openly; o theneedtofaceissuesaroundconfidentiality,andotherlegalissues, squarelyratherthanhidingbehindthem,learningtosharesimilar storiestoincreaseunderstandingwithoutbreaching

4.55

Ayre,P.(2001),ChildProtectionandtheMedia:lessonsfromthelastthreedecades,BJSW31(6), 887901 92 SocialWorkTaskForce(2009),BuildingaSafeandConfidentFuture,p7 93 Kitzinger,J.(2004),FramingAbuse:MediaInfluenceandPublicUnderstandingofSexualViolence AgainstChildren 94 SeeMunroI,c2.10,p27;Mansell,J.(2006),TheUnderlyingInstabilityinStatutoryChild Protection:UnderstandingtheSystemDynamicsDrivingRiskAssuranceLevels,SocialPolicyJournal ofNewZealand,no.28

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confidentiality/clientrelationships; o thewiderangeofperceptionsthepublicandjournalistscurrently haveaboutsocialwork;and o theimportanceofwideningthedebateonchildprotectionsothatit coverspositive,aswellasnegative,aspectsofthiswork. Improvingtheresponseofthesocialworkprofessiontopublicdebatesabouttheir work,especiallyinacrisis,sothatthereisacleareraccountofprofessional practice: Childprotectionprofessionalsandthoserepresentingtheminthemedia mustdevelopbetterwaysofjoininginwithpublicdebatesabouttheirrole andresponsibilities.ThereviewwillworkwiththeCollegeofSocialWorkto: o considerhowchildprotectionprofessionalscanjointhisdebateto makethebiggestimpact; o helpmakecleartheimportanceofleadersspeakingoutconstructively andhowcommunicatingwellonissuesofpublicinterestshouldbea keypartofanycorporateethos;and o emphasisetheimportanceofcollectivesupportandresponsibility amongorganisations,andacrossthem.

4.56

4.57

Inthinkingabouttheseissues,thereviewhasbeenstruckbythethoughtful responsesofthePrimeMinisterandHomeSecretarywhencommentingonthe eventson2June2010when12peoplewereshotdeadand11injuredinWest Cumbria: Ofcourseweshouldlookatthisissuebutweshouldnotleaptokneejerk conclusionsonwhatshouldbedoneontheregulatoryfront (PrimeMinister) Butitwouldbewrongtoreactbeforeweknowthefullfacts.Todaywemust remembertheinnocentpeoplewhoweretakenfromusastheywentabout theirlives,then,wemustallowthepolicetimetocompletetheirinvestigations. (HomeSecretary) Giventheuncertaintyinherentinchildprotectionwork,socialworkersareentitled toexpectsimilarlycalmandthoughtfulresponsesfrompoliticians,themediaand publicwhenatragedyoccursinthechildprotectionsystem,recognisingtheneedfor timeforprofessionaljudgmentsandactionstobethoughtfullyreviewed,lessons learnedandanyprofessionalmalpracticeidentified.

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Monitoringperformance
Indesigningrecommendations,thereviewwillbeconsideringhowthesystem canbecomebetteratmonitoringhowitisperforming,learningaboutemerging difficulties,andrespondingcreativelyandadaptingtotacklethem.Theaimisa legacywherethesystemisbetterequippedtocontinuouslylearnand improve95. 4.58 Thefirstreportbeganwithsomeexamplesofhowtheinteractionsofprevious reformsofchildprotectionhaveledtoimbalancesanddistortionsofcurrentpractice priorities.Thereformsweredesignedbywellinformedandwellintentioned people;thenegativeconsequenceswerebothunintendedandunforeseen.Where wemightjustifiablycriticiseisthatalertsabouttheunexpectedconsequenceswere notgivensufficientheed,e.g.feedbackontheperverseincentivesofprocess focussedperformancemeasures.Imbalanceswerethereforenotamendedand insteadlefttoincrease.Sohowcanwegetbetteratnoticingwhenthingsare gettingoutofbalance?Howcanwecreateachildprotectionsystemthatisableto noticewhenimbalancesaredevelopingandtocorrectthemmorequicklyasan integralpartoforganisationallearning?Asnotedinthequotationabove,thatisthe legacythatthisreviewaimstoachieve. Thesequestionshingeontheissueofhowasystemlearnsinordertobeableto adaptandultimatelyimprove.Somekeyideasfromsystemstheorywereintroduced inthefirstreport,whicharehelpfulinthisregard.Oneisthatofasystemrequiring feedback,ordataaboutwhatisactuallygoingonatthefrontline,wheregoals, structures,reforms,policies,proceduresetc.cometogetherindirectworkwith children,youngpeopleandfamilies.Linkedtothenotionoffeedbackwasthe conceptofloopsoflearning,wherebycorrectiveactionistakenonthebasisofthe feedback.Singlelooplearningfocusesoncompliancewithprescribedbehaviour;it islikeathermostatthatlearnswhenitistoohotortoocoldandturnstheheatonor off.Doublelooplearninggoesfurthertoreflectontheappropriatenessofthe originalprescription,focusingnotonlyonwhetherwearedoingthingsrightbut whetherwearedoingtherightthing.Theinitialreportraisedthequestionof whether,todate,wehavedonetoolittlelearningofthedoubleloopkind. Theimportanceofhavinggoodfeedbackloops,inordertodetectandrespondto emergingimbalancesandproblemsinthesystem,underpinsthisreviewsinterestin makingrecommendationsthatsupportthedevelopmentofthechildrenssocialcare intoalearningorganisation.Thinkingintermsofdevelopingintoalearning organisationwillhavesignificantimplicationsforhowthereviewthinksaboutuseful changestomanagementandinspectionprocessesofmultiagencyworkontheone hand,andhowtoimproveopportunitiesofmultiagencylearningfrompractice, includingseriouscases,ontheother.Thesearedrawnoutinotherchaptersofthis
Munro,E.(2010).TheMunroReviewofChildProtectionPartOne:ASystemsAnalysis(available onlineat http://www.education.gov.uk/munroreview/downloads/TheMunroReviewofChildProtection Part%20one.pdf),p10
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reportwithchapterfivefocussingexplicitlyonthesharedresponsibilityfor managingperformance.

Organisationalinnovation:SocialWorkPractices
4.61 Ithasbeenarguedthatdifficultiesincreatinganeffectivesocialworkservicearein partduetotheirbeingwithinlocalgovernmentwheretherearecompetingpolitical interestsandaworkculturethatdoesnotreadilyencompasscreative,innovative professionalpractice.Socialworkpractices,whereagroupofsocialworkersworkin autonomousorganisationsandcontractwithalocalauthoritytoprovideasocial workservicetolookedafterchildren,havebeenproposedasawayofcountering themanagerialdominanceinlocalauthoritychildrenssocialcareandallowing professionalismtoflourish96.Theaimsclearlyareverymuchinlinewiththeremitof thisreview.AnumberofSocialWorkPracticePilotsarecurrentlyinoperationand morearebeingdeveloped.Thesearebeingindependentlyevaluatedandfindings willbepublishedin2012.Interimfindingswillbeavailabletothereviewbeforethe finalreport.Besidesformingaviewontheirroleinrelationtolookedafterchildren, thereviewwillalsoconsiderwhetherandhowsomeofthepositivefeaturesoftheir practicethatareemergingfromthepilotscouldbetransferabletootherareasof childandfamilysocialwork.Earlyindicatorswouldsuggestthatelementsof practice,whichiftransferable,maymakeasignificantdifferencetothequalityof servicereceivedbychildrenandfamiliesinclude: stabilityofstaffgroup,lowerstaffturnover,reducedvacancies; increasedmotivationofstaff,lowersicknesslevels; ownershipbythestaffgroupoftheteamcaseload,knowingeachothers casestherebybeingavailabletoassistchildren,familiesandother professionalsifaqueryariseswhentheprimaryworkerisnotavailable; staffabletospendmoretimewithchildren,youngpeopleandtheirfamilies; and reducedbureaucracybasedonthereducedhierarchicalprocessesfor approvalsanddecisions.

ChiefSocialWorker
4.62 ThereviewhasbeenaskedtoconsiderwhetherthereisaroleforaChiefSocial Worker.Atpresentthereisnopermanent,professionalrepresentativeofsocial workinGovernment.OnemodelthereviewisconsideringisthatofaChiefSocial WorkerlikethatemployedinNewZealandwherethepositionhassuccessfully raisedtheprofileandpublicunderstandingoftheprofession.Sucharole,however, needstobeseeninthecontextoftherevisedcareerstructurethatthereviewis consideringinwhichtherewouldbeanumberofveryseniorsocialworkerswhose identitywasclearlyasprofessionalsnotmanagers.Suchanetworkofexperienced professionalscouldprovidegoodsupporttoaChiefSocialWorker.
leGrand,J.(2007),ConsistentCareMatters:ExploringthePotentialofSocialWorkPractices, London,DfES
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4.63

Inthefinalphase,thereviewwillbeconsideringwhethersucharoleisthemost appropriatewayofsharingtheprofessionsexperienceswithGovernmentandthe public,whattherelationshipoftherolewouldbetootherprofessionalandpublic bodies,wheresucharoleshouldsit,howandbywhomitshouldbeappointed,and whatitspreciseremitmightbe.

CollegeofSocialWork
4.64 InstarkcomparisontotheRoyalCollegesofhealthprofessionals,andthe AssociationofChiefPoliceOfficers,untilrecentlysocialworkhashadnosingle professionallyledstrategicbody.Theresultofthishasbeenthat,sincethe1970s, theresponsibilityforissuingprofessionalpracticeguidancehasfallenon Government.Inevitably,onoccasion,thishasmeantthatprofessionalpracticehas beensubjectedtopoliticalkneejerkresponsestocrises.Consequently,thereview welcomestheestablishmentoftheCollegeofSocialWorkfollowingthe recommendationsoftheSocialWorkTaskForcewhichexplainedhowsocialwork lacksasinglelocusofresponsibilityforpromotingtheprofession,improvingpublic understanding,spreadingbestpracticeanddrivingupitsstandards97. TheCollegeischargedwithactingasthevoiceoftheprofessioninfurtheringthe reformssetoutbytheTaskForce,e.g.increatinganationallyrecognisedcareer structureandestablishingnewstandardsforemployers.Thisreviewenvisagesthat theCollegewillplayanequallysignificantroleinfurtheringthereformssetoutin thefinalreport.ThefollowingexcerptsfromtheCollegesaimsshowthelinkswith thereviewsconcerns98: TheCollegesstrategicaimsforthefirstthreeyearstoestablishanddevelop theCollegeofSocialWorkare: ProvidingguidanceandsupporttotheprofessionandalliedprofessionsThe Collegewill:
97 98

4.65

tobeapowerfulvoiceforthesocialworkprofession,indiscussionswith thepublic,policymakersandthemedia; toprovidestrongleadershipfortheprofession; toworkcloselywithpeoplewhousesocialworkservicesandcarers, ensuringthattheirviewsareincorporatedintotheoveralldevelopmentof TheCollege;and tobeaninternationalcentreofexcellenceforthesocialworkprofession. (TheCollegeofSocialWork,2011,StrategicVision)

providenationalguidance,clarifyingwhatgoodpracticemeansin

SocialWorkTaskForce(2009),BuildingaSafeandConfidentFuture,4.1 NationalCollegeofSocialWork(2010),StrategicVision(availableonlineat http://www.collegeofsocialwork.org/files/Strategic_Vision_of_The_College.pdf)

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situationsatalllevelsofthesocialworkprofession; provideuptodateinformationandguidanceonissuesaffectingthe profession; collectanddisseminateknowledge,evidenceandexemplarsofwhat works; enablesocialworkerstoaccessuptodateknowledgeandinformationto informandsupporttheirpractice;and provideadvice,guidanceandsupporttosocialworkers,enablingthemto worktothehigheststandards. (TheCollegeofSocialWork,2011,StrategicVision)

Conclusion
4.66 Thesupportthatmanagersgivefrontlinesocialworkstaffiscrucialinhelpingthem practiceatahighlevel.However,theyfaceacomplexsituation.Therearetoomany inthecurrentworkforcewhoareinexperiencedandwhosebasictrainingdidnot coversignificantareasofknowledgeandskillsneededinchildandfamilysocial work.Forexample,childdevelopmentisnotcoveredthoroughlyinallcourses. Managersthereforeneedtoprovideconsiderableguidanceandoversighttocounter suchdeficienciesintheirfrontlinestaff.Aproblemidentifiedbythereviewisthat suchsupportcanbeofferedinawaythatdiscouragesthedevelopmentofexpertise andtheneedistodesignsupportthatcanadapttothegrowingexpertiseofthe worker. Rules,forinstance,areaquicksolutiontominimisethechancesofasocialworker makinganobviousmistakebutrules,inacomplianceculture,canleadtoworkers justdoingastheyaretoldandnotlearningwhytheruleisgenerallyappropriate. Thisdeeperunderstandingisneededtoenableworkerstorespondtothevaried circumstancesofchildrenandmakejudgmentsthatadeviationfromtheruleisin thebestinterestsofaspecificchildoryoungperson. Theconundrumfacingmanagersisthatthequickwayofachievingaminimum standardofpracticeisthroughruleandprocessdrivenpractice,butthiscreates obstaclestothedevelopmentofhigherlevelsofpractice.Asimpleexampleofhow itinhibitslearningisthatitisafactorindrivingstaffawayandretainingstaffisa necessarysteptohelpingthemachieveexpertise.Manyarediscouragedfrom stayingbythequickremedies,theincreasedpaperwork,andthelackofopportunity toexerciseprofessionaljudgment.Evidencefromstudiesofwhysocialworkers leaveindicatethattheproblemwouldbereducedifstaffweregiventhework conditionsthathelpthemlearnanddevelop,iftheyweremoreeffectively supportedinhandlingtheemotional,moralandcognitiveaspectsofthework,were giventheopportunitytodevelopexpertise,andweregiventhechancetoworkwith familiestohelptheminsteadofbecomingmainlycasemanagerswhoassessand referon99.
Healy,K.,Meagher,G.,&Cullin,J.(2009),RetainingNovicestoBecomeExpertChildProtection Practitioners:Creatingcareerpathwaysindirectpractice,BritishJournalofSocialWork,39,299317;
99

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Socialworkwithchildrenandfamiliescanbeaveryrewardingareaofpracticeand historicallyithashadgoodrecruitmentandretention100.Thereviewisconsidering howalteringthecareerstructureandprovidingmorehelpindevelopingexpertisein exercisingprofessionaljudgmentandofferingeffectivehelpcouldcounterthe currentproblemsinkeepingenoughsocialworkersinpracticetoraisethestandard ofprofessionalpractice.

Healy,K.&Oltedal,S.(2010),AnInstitutionalComparisonofChildProtectionSystemsinAustralia andNorwayFocusedonWorkforceRetention.JournalofSocialPolicy39:255274 100 AuditCommission(1994)SeenbutnotHeard:CoordinatingCommunityChildHealthandSocial ServicesforChildreninNeed

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ChapterFive:Sharedlearningand accountability

Introduction
5.1 Chaptersthreeandfourfocusedonthepartsofthereviewremitthatrelateto supportingsocialworkersinprovidingeffectivehelptochildrenandfamilies.This chapterbuildsonchaptertwobygivingfurtherconsiderationtomultiagency arrangements,reflectingthemanyservicesandprofessionsthatplayapartin effectivesafeguardingarrangementsandintheprotectionofchildrenfromharm. Thechapterlooksspecificallyattheinfluenceofleadershipinlocalsystemsandat accountabilityinthecontextofmajorpublicservicereform,problemsinmanaging multiagencyperformanceandinspection,multiprofessionalrulesandguidance, andthescopeforsectorbasedapproachestoimprovingperformance.Itexplores theneedtostrengthenLocalSafeguardingChildrenBoards(LSCBs)roleinmulti agencytrainingandlearning,withparticularattentiontoSeriousCaseReviews (SCRs).ThischapterconcludesbygivingattentiontotheFamilyJusticeReviewwork toimprovethetimelinessofthecourtprocessforthosechildrenwhosejourneys involvefamilycourtproceedings.

Complexorganisations
5.2 Thereviewsfirstreporthighlightedthatwearedealingwithcomplexbehaviour thatrequiresasystemsapproachtounderstandingtheinteractionofitsconstituent partsandtheinevitableappearanceofunintendedconsequencesthatneedtobe searchedforandrespondedtopromptly.Table5.1fromthefirstreport, reproducedoverleaf,summarisedtheapproachthathasbeendominantand,inthe righthandcolumn,theapproachtowardswhichthereviewadvocatesthatthe systemmoves. Seniorleadersfromthelocalagenciesarechargedwithworkingtogetherthoughthe LSCBtoprovidelocalleadershipforhowagenciesworktogetherandtooverseethe effectivenessofthechildprotectionsysteminhelpingchildrenandyoungpeople. LSCBsarewellplacedtotaketheholisticapproachtochildprotectiondescribedin therighthandcolumninthetableabove.LSCBscanmonitorqualityandlearnfrom theircollectiveperformanceinrelationtothechildsjourneyandidentifyemerging problemsinthesystem. ForLSCBstobeeffective,theyrequireevidenceofthechildsjourneythroughthe localsystem,includingresearch,dataandfeedbackfromchildrenandfamiliesthat theLSCBcanusetodriveimprovement,holdagenciestoaccountandencourage learningandadaptivepracticeacrossagencies.Themajorchangestothelocal landscapeoverthecomingyears,allsetwithinthetighterfiscalclimate,will maketheroleofLSCBsevenmorevital.Thereisapressingneedtomonitorthe wholesystemsothattheoftenunintendedrepercussionsofchangeinoneservice onothersarequicklyidentified.

5.3

5.4

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Nature AtomisticApproach ToChildProtection Narrow:tendingtoconcentrate onindividualpartsorelements Isolatedproblems Cause& Effect Styleof Recommend ations Results (observed andsought) Regulationandcompliance Technocratic Narrowrangeofresponsesto childrensandyoungpeoples needs Defensivemanagementofrisk Commandandcontrol management;frameworksand procedures;squeezingout professionaldiscretion Complianceculture Focusonstandardised processes,frameworksand procedures Lookingonlyatimmediate and/orproximaleffects Shortchainsofcausality Separatedinspaceandtime: Longchainsofcausality, rippleeffects,unintended consequences,feedback effects Strengthening professionalism Sociotechnical Requisitevarietyin responsestomeeting childrensandyoung peoplesneeds Acceptanceofirreducible risk Supportiveandenabling management Learningculture Focusonchildren,their needs,appropriate pathwaysbeneficial outcomes. HolisticApproach ToChildProtection Broad:elementsseenas standinginrelationtoeach other Wholesystem

Perspective

Table5.1Atomisticandholisticapproachestochildprotection

Signposting
5.5 Thereviewhasnowbeenremittedtoconsiderthepotentialvalueofhavinga nationalmeansofprovidingaquickandreliablewayofidentifyingwhetherachild oryoungpersonis,orhasbeen,thesubjectofachildprotectionplanorwhether theyare,orhavebeen,lookedafter.Inthenextphase,thereviewwillworkwith professionalsandmultiagencyteamstoconsiderwhethersuchaservicewould makeasignificantcontributiontochildrenssafety,befitforpurposeand proportionate.

Leadership
5.6 Childrensservicesleaderscurrentlyfaceanumberofchallenges,including continuingpublicsectorreform,aharshfinancialenvironment,higherexpectations forthedeliveryofservicesand,inmanypartsofthecountry,difficultiesinrecruiting andretainingsocialcarestaffthatmayseemintractable.TheNationalCollegeof LeadershipforSchoolsandChildrensServices,willshortlybepublishingareport,

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5.7

5.8

LeadingforOutcomes ,thathelpfullycitesKeithGrints conceptofwicked problemsasameansofdescribingtheparticularcomplexitiesforleadersof childrensservicesatthistime.Suchproblemsaresaidtobecomplexandoften withoutsolution.Theyaremademorecomplexthroughmultiplestakeholdersand multipleperceptionsofthesameproblem.Itfollowsthatsuchcomplexityrequires leaderswithparticularstrengthsandachildrensservicessystemwhichhasclear andwellunderstoodleadershipaccountabilities. TheforthcomingLeadingforOutcomesreportdescribestheattributesofDirectors ofChildrensServicesleadingcomplexsystemsthathousewickedproblems.Such attributesalignwellwiththecharacteristicsofalearningandadaptiveorganisation: opennesstopossibilitiesunderstandingthedifferentoptionsforresource deploymentandusingtheresourcesavailabletotheminaconsideredway; theabilitytocollaborateworkingtogetherwithonesteam,partners,and politicalandcorporateleaderstoworkonoutcomesanddeliverresults; demonstratingabeliefintheirteamandpeoplefosteringasenseofteam andpracticesofteamworkingtoworkenableworkingthroughothers; personalresilienceandtenacitydemonstratingtheabilitytoseethings throughandworkthroughchallenges; theabilitytocreateandsustaincommitmentacrossasystemaligning peopletoworktowardsacommongoal; displayingafocusonresultsandoutcomesnotonlyinputs,outputsorthe process,andensuringthattheimprovementofoutcomesistheoverarching priority; abilitytosimplifyremovingunnecessarycomplexityfromsystems,andalso increatingasimple,clearnarrativeorstrategy;and willingnessandabilitytolearncontinuouslytryingnewtoolsand techniquesandadaptingthemasnecessary,learningfromtheexperienceof leadershipandresourcedeployment. Evidencetothisreview,drawnfromthelocalareaswehavevisited,thediscussions wehavebeenpartofandmuchoftheresearchevidencethathasbeenmade available,confirmsstronglythattheroleofthelocalleadershipteamiscriticalin establishingandsustainingtheadaptivebehavioursneededtomanagetheprovision ofgoodchildprotectionservices.

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Accountability
5.9 BothofLordLamingsreports,TheVictoriaClimbiInquiry 103andTheProtectionof ChildreninEngland,aprogressreport,emphasisedthefundamentalimportanceof
LeadingforOutcomes,commissionedbyNationalCollegeofLeadershipforSchoolsandChildrens ServicesandtheCrentreforExcellenceandOutcomes(C4EO),writtenbyDeloitte,Navigateand OxfordUniversity,forthcomingFebruary2011 102 Problems,Problems,Problems:thesocialconstructionofleadership,KeithGrint,H.Kerusuoetal. (Eds),LearningandCollectiveCreativity:ActivitytheoreticalandSocioculturalStudies.Cambridge: CUP,2005. 103 TheVictoriaClimbiInquiry,2003, http://www.dh.gov.uk/en/Publicationsandstatistics/Publications/PublicationsPolicyAndGuidance/DH _4008654
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goodleadershipandclearaccountabilitiesinservicesthatprotectchildrenfrom harm. Effectiveleadershipsetsthedirectionofanorganisation,itscultureandvalue systemandultimatelydrivesthequalityandeffectivenessoftheservices provided.Itisessentialthatthereissustainedcommitmenttochildprotection andpromotingthewelfareofchildrenateverylevelofgovernmentandin everyoneofthelocalservices104. LordLamingconfirmedtheimportantrolesoflocalauthorityCouncilLeaders,Chief Executives,LeadMembersforChildrensServicesandDirectorsofChildrens Servicesinexercisingleadershipofchildprotection.Thisreviewaffirmstheneedfor astronglocalspineofaccountableleaderswithresponsibilitylocatedinthelocal authorityasreflectedinthecurrentstatutoryframework.Inparticularthereview considersitimportantthatlocalauthoritiesensurethattheroleoftheDirectorof ChildrensServicescontinuesasthekeypointofprofessionalaccountabilityforchild protectionserviceswithinthelocalauthorityandthatthisisnotdilutedor weakened. However,wheremoreclarityisneededaroundaccountabilityisinresponsetothe extentofpublicservicereformatthepresenttime,particularlyinnationalandlocal healthstructures,butalsointhepolice,localgovernmentandeducation.Itwill thereforebeimportanttotaketheopportunitythroughthefinalphaseofthis reviewtobeevencleareraboutwhereaccountabilityliesandtherespectiveroles andresponsibilitiesoflocallyelectedmembers;scrutinycommittees;Chief Executives;DirectorsofChildrensServices;DirectorsofAdultServices;LSCBchairs; newDirectorsofPublicHealth;newHealthandWellBeingBoards;newGP consortia;andnewdirectlyelectedPoliceandCrimeCommissioners.

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Managingperformance
5.12 Themessagesfrontlineworkersreceiveaboutwhatisimportanthaveastrong influenceonthewaytheypractiseandonhowcaseloadsareprioritised.The evidenceoffailuretospendsufficienttimewithfamilies,andespeciallysufficient timewithchildren,reflectstheprioritiesthatarebeingdisseminatedinthe organisation.Onegroupoffrontlineworkersexplainedhowseniormanagersmade alltherightkindofcommentsaboutqualitywork,timeforcriticalreflection,andfor professionalsupervision.Buttheysaidthesethingsinaquietvoice;theyspoke loudlyabouttheneedtomeetperformanceindicatorsandfollowedthisupwith emailstocheckthattheywerebeingmet.Greaterweightshouldbegiventohow childrenfeelabouttheservicethattheyarereceiving:Aretheirviewsbeinglistened to?Aresocialworkersexplainingtothemwhatishappeningandwhy?Dotheyfeel saferasaresultoftheservicesthattheyarereceiving? Thesystemofprocessbasedtargetsandperformanceindicatorshasskewedlocal prioritiessothatthefocusisonspecificaspectsofprocessratherthanpractice qualityandlearning.AshighlightedbyTilbury105,thegoalhasbeentoworktothe
TheProtectionofChildreninEngland,TheLordLaming,2009, http://publications.education.gov.uk/eOrderingDownload/HC330.pdf 105 Tilbury(2006)
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performancemeasure,e.g.tocompleteaninitialassessmentinasetnumberof workingdayswhichcanhaveapositiveimpactonanarrowpartofsocialwork practiceratherthantoworkinamannertailoredtoaddressingthespecificneeds andrequirementsofeachcaseandthechildrenoryoungpeopleinvolved. Thisview issupportedbyevidencesubmittedtothereviewinthefirstphaseandthe2009 researchconductedbyBroadhurstetal106.Performancemeasurescanhave unintendedeffectswhenimplementedbyanxiousmanagers,asdescribedbySanger inthePublicAdministrationReview(2008)107: Evenmatureandwelldesignedsystemsimplementedinprogressiveand culturallyhospitableenvironmentscanbeignored,ifnotsubverted,byanxious bureaucrats. 5.14 Nevertheless,asOfstedrecentlyhighlighted,itisimportantthatlocalauthorities havegooddataandmanagementsystemswhichenablemanagerstomake intelligentuseofdatatohelptofacilitateongoinglearninganddrivecontinuously improvingpractice.Theavailabilityofstandardiseddatafeaturedinthe GovernmentsCoalitionAgreement108andtheChildONEuropeGuidelinesonData CollectionandMonitoringSystemsonChildAbuse109emphasisestheimportance thattheUNConventionontheRightsoftheChildplacesongooddatacollection systems.TheChildONEuropeguidelinesalsomakecleartheimportanceofdata needingtobecoordinatedthroughoutthejurisdictionensuringnationallyapplicable indicators. Itiscrucialthatdata,inkeepingwiththethemeofthisreport,enablestheeffective mappingofthechildsjourneythroughthesystem.Suchdatacanhelptoinformthe developmentandevaluationofpolicybycentralGovernmentaswellasdrive improvementandencouragelearningandadaptivepracticeatthelocallevel.The CoalitionGovernmentsnewsinglecomprehensivelistofdata,willlistinoneplace allthedatathatcentralGovernmentcollectsfromlocalauthorities,increasing transparencywhilealsoaimingtoreducedataburdens. Inlinewiththedevelopmentofthesinglecomprehensivelist,andthereviewofthe ChildreninNeedcensus(withwhichthereviewteamiscloselyengaged),thisreview isworkingtowardsareducedandrefocussedsetofdatathatwouldcapturethe minimuminformationneededtoruneffectivechildrenssocialcareservices.This wouldbemadeupoftwoessentialcomponents: acoreofdatacollectedbycentralGovernmentwhich,importantlyshould alsofillexistinggapsinnationaldata,forexampleinrelationtothesocial careworkforce;and recommendeddiscretionarydata,whichwouldbepublishedbylocalareasin astandardisedformtoenablebenchmarking,comparabilityandpublic

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http://www98.griffith.edu.au/dspace/bitstream/10072/11223/1/tilbury_accountabilityviaPM.pdf 106 Broadhurstetat(2009)http://www.publicservices.ac.uk/wpcontent/uploads/broadhurstet al_2009performinginititalassessment_.pdf 107 Sanger,M.B.(2008).FromMeasurementtoManagement:BreakingthroughtheBarrierstoState andLocalPerformance,PublicAdministrationReview,68,specialissue,S70S85. 108 http://www.cabinetoffice.gov.uk/media/409088/pfg_coalition.pdf 109 http://www.childoneurope.org/issues/publications/childabuse_guidelines.pdf

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accountability. Akeyaspectofthisstandardisedlocaldatashouldberegularfeedbackfrom children,youngpeople,families,staffandpartners.AstheAssociationofDirectors ofChildrensServices(ADCS)statedintheirresponse110tothe2009national consultationonrevisedindicatorsforchildprotection,performancemeasures: Donotprovidemeasuresofqualityoroutcomethatcanbereliedonwithout otherinformationwhichgetsmuchclosertotheexperienceofthosereceiving services. Suchdataisakeysourceofinformationonhoweffectivelyservicesareworkingand helpstoinformmanagementoversight.

5.18

Thistwincoreofdata(i.e.singlecomprehensivelistplusrecommended standardisedlocaldata)shouldseekto: createabetterbalancebetweentheuseofdataforthepurposesofexternal accountability(measurement)andsharedlearning(feedback).Currently,the balanceistowardstheformerattheexpenseofthelatter; moveawayfromreportingsystemsthatencouragealinearcauseandeffect viewofeventstowardsanapproachthatencouragesasystemsbased perspective; giveprofessionalsfreedomtooperate,withperformanceevaluatedagainst populationoutcomesandservicequality;and providehigherleveloutcomeandservicequalityinformationtocentral Government,andstandardisedmanagementinformationforusebylocal authorities.

Inspection
5.19 Thereviewsfirstreportreflectedonthewayinwhichtheinspectionsystemhas beencriticisedforaperceivedfocusonprocessoveroutcomesforchildrenand servicequality.TheCoalitionGovernmentscommitmenttoreducingtheinspection burdenonlocalagenciescreatesanexcellentopportunitynotonlytostreamlinethe inspectionprocess,butalsotoaddresstheperceivedweaknessesofthesystem. Anyfutureinspectionframeworkmustdrivechildcentredpractice,focusonthe effectivenessofhelpprovidedtochildrenandtheirfamilies,thequalityofthe learningacrosslocalorganisationsandpositiveoutcomesratherthancompliance withprocess. Thereviewendorsesthedistinctroleexternalinspectioncanplayinthe improvementofservicesforchildrenandthatinspectionshouldcontinuefor safeguardingandchildprotectionservicesinthefuture,apointthatADCSmadein theirresponsetoarecentLocalGovernmentGroupconsultation111.Aspointedout
AssociationofDirectorsofChildrensServicesresponsetothe2009nationalconsultationon revisedindicatorsforchildprotection(availableonlineatwww.adcs.org.uk/download/position statements/november09/ADCSpositiononinspection.pdf) 111 http://www.adcs.org.uk/download/consultationresponses/nov10/lggsectorselfregand imporvementadcsresponse.pdf
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intherecentSchoolsWhitePaper ,inspectionalsoremainscrucialforthe purposesofpromotingaccountability.Theexternalityprovidedbyinspectionis perhapsthesinglemostimportantelementthatdistinguishesinspectionfrom sectorbasedimprovementsolutionsdiscussedlaterinthischapterand,giventhe capacityissuesrelatedtodevelopingfullyasectorbasedimprovementmodel,itis crucialthatexternalinspectioncontinues. Thecurrenttwintrackapproachinchildrensservicesinspectionsconsistingofa threeyearrollingprogrammeofannouncedinspectionsalongsideanannualcycleof unannouncedinspections,offersscopetoreducethebureaucraticburdenof inspection,inlinewiththeCoalitionGovernmentscommitments.Theannounced inspectionprogrammebringswithitaconsiderablenumberofbureaucraticburdens asexplainedbyADCSintheirresponse,inJuly2010,toOfstedsreviewofthese inspections113.IntheirevidencetotheEducationSelectCommitteeontheroleand performanceofOfsted,ADCSalsostatedthat: Anindustryhasgrownuparoundthepreparationforannouncedinspection. Thisisbecausetheconsequenceofapoorserviceinspectionoutcomeonthe overallannualratingofachildrensservicesdepartmentisseriousindeed.The perceivedpunitiveeffectsandtheimpactofjudgementsonservicesintermsof thelocal(andnational)mediaandpoliticalresponsehavecreatedtheclimate wherebytheinspectedmanageforinspectionratherthanmanagingforquality andcontinuousimprovementofservicesforchildrenandyoungpeople114. Simplyhaltingtherollingprogrammeofinspectionswouldnotbeasolutioninitself, althoughitseemsapparentthatamodelwhereinspectionisundertakenonan unannouncedbasiswouldeliminateavastswatheofburdenonlocalareasby drasticallyreducingthepreparationelementofinspections.Thecurrent unannouncedinspections,though,arefocussedsolelyoncontact,referraland assessmentarrangementsthelocalauthorityfrontdoorratherthanthe broader,moremultiagencyfocussedprogrammeofannouncedinspectionsof safeguardingandlookedafterchildrenservices. Thereviewisrecommendingthatannouncedinspectionsshouldendaspartof forthcomingrevisionstotheinspectionframework.Instead,unannounced inspectionsshouldbegivenabroaderremitacrossthecontributionofallchildrens servicestotheprotectionofchildren.ThissolutionwasadvocatedbytheNSPCCin theirsubmission(October2010)totheEducationSelectCommitteeontheroleand performanceofOfsted,andADCStookthesameviewintheirsubmissiontothe sameinquiry: Theprincipleofunannouncedinspectionisrightanddrivesimprovement withouttheexcessivepreparationforannouncedinspections.Suchinspection shouldremainshort,sharpandfocussed,althoughthecurrentfocusof unannouncedinspectionofcontactandreferralcentres(frontdoordutyrooms) couldhelpfullybebroadenedtoincludeotheraspectsofsafeguardingandchild
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http://publications.education.gov.uk/eOrderingDownload/CM7980.pdf http://www.adcs.org.uk/download/consultationresponses/july10/ofstedreviewsglac inspectionprocess.pdf 114 http://www.publications.parliament.uk/pa/cm201011/cmselect/cmeduc/writev/ofsted/97.htm

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protectionservices . Byreducingtheinspectionburden,suchasystemwouldalsoachievegreater proportionality.Evengreaterproportionalitymightbeachievedbyadoptingarisk basedapproachtotheprogrammingofinspection,butthiscouldbeoperationally difficultduetothelimitationsofchildprotectiondataasaneffectiveindicatorof performance.Itwillbeimportant,therefore,thatinspectionofchildprotection servicescontinuestobeuniversal,evenforthoselocalareasconsideredtobehigher performing.Childprotectionisacomplexareaofmultiagencyworkingwith tremendousuncertaintywhichmightmeanthataservicethathaspreviously performedwellmightnotcontinuetodosooveranextendedperiodoftime. Infuture,inspectoratesshouldworkmorecloselytogethersothatinspectionis betterabletoexaminechildrensexperiencesandtheirjourneythroughthesystem, fromneedingtoreceivinghelp.Theoutputsfromsuchinspectionsshouldbe learningthathelpsdrivethedevelopmentoflocalchildcentredpracticeand improveoutcomesforchildren.Inspectoratesshould,inthedesignofanewsystem ofinspections,explorehowbestthemultiagencyaspectsofchildprotectionare fullyconsidered. Futureinspectionshouldhaveaclearfocusontheprovisionofearlyhelpandthe effectivenessofmultiagencyarrangementsinidentifyingmaltreatment,thequality offrontlinepracticeandthecompetenciesofthoseworkersinexercising professionaljudgmentandprovidinghelp.Inspectionshouldexaminewhetherthe environmentinwhichworkersoperatefosterstheexerciseofsoundprofessional judgement,withcompliancewithguidanceandprocessesgivenlessemphasis.Such aninspectionframeworkshouldfocusmoreexplicitlyonindicatinghow improvementsinservicesmightbestbeachieved,includinghighlightingwheregood practiceexists. Inspectionshouldalsoidentifywhetherlocalauthoritiesandpartnersarelearning, adaptingandimprovinginlinewithrecommendations,whichmightsuggesta system,alongsideanewbroadersetofunannouncedinspections,oftargeteddeep diveinspections.Suchdeepdiveinspectionswouldbetailoredtosuitlocal circumstancesandparticularconcernsandcouldplayaninvestigativerolewhere previousinspection,data,sectorbasedapproachesorotherfactorssuggestreasons forconcernsaroundanaspectofpracticeinaparticularlocalarea. Itwillremainvitalthatthechildprotectionandsafeguardingresponsibilitiesof institutionslikeschools,earlyyearssettings,hospitals,andservicessuchaspolice andyouthoffendingworkareproperlyreflectedintheirrespectiveinspection frameworks,includingthenewframeworkforschoolinspectionscurrentlybeing developedbyOfsted.
http://www.nspcc.org.uk/Inform/policyandpublicaffairs/consultations/2010/role_and_performance_ of_ofsted_wdf78951.pdfand http://www.publications.parliament.uk/pa/cm201011/cmselect/cmeduc/writev/ofsted/62.htm
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Sectorbasedapproachestoimprovement
5.29 Modelsofsectorbasedsupportandimprovement,includingselfevaluationand peerreview,areintheprocessofbeingdevelopedbytheDepartmentforEducation andlocalgovernmentpartners.Itisimportantthissupplementsthereductioninthe burdenofinspectionoutlinedabove.Proposalsinthisareawererecentlythe subjectofaLocalGovernmentGroupconsultation116,andADCSintheir2009 positionpaperoninspection117statedthat: thetimeisripeforthedevelopmentofaviablesystemwide,sectorled alternativebasedonpeerreview,whichactsasacatalystforimprovementand offersbettervalueformoneythantheexistingmodel. 5.30 Asectorbasedimprovementmodelandinparticularasystematicprocessofpeer reviewsembeddedwithinthecultureoflocalauthoritiesandpartneragencies couldhaveanimportantroletoplayinfacilitatinglearningthroughoutthesystem. Amajorstrengthofapeerreviewsystemisthatlearningwillbetwoway,withthe reviewerlearningfromtherevieweeandviceversa. Giventheuncertaintiesinchildprotectionandtheinabilityofdatatobeaneffective predictororindicatorofperformanceissues,itisimportantthatpeerreviewsand widersectorbasedimprovementmechanismsarenormativeratherthantargeted onthoseareasthatareperceivedtobeweak,failingorcoasting.However,this clearlyimpliesanextensivecommitmentfromthesectorintermsofresources,both financialandhuman.Itmakessenseforsectorbasedimprovementsupporttobe broughtonstreamgradually,whilesufficientcapacityisdeveloped.Afullsystem couldthenbebuiltupinparallelwiththedevelopmentofarevisedinspection framework.

5.31

Multiagencytrainingandlearning
5.32 Thereviewhasarguedfortheneedforthechildprotectionsystemtomovefroma complianceculturetoalearningone,whereallorganisationslocallybecome adaptive,learningorganisations,constantlyreflectingandadjustingthework environmenttosupportprofessionalstousetheirknowledge,skillsandjudgmentin thebestinterestsofthechild.Thislearningcultureisneededbothwithinand betweenagencieslocally.TheLSCBhasthekeyroleinpromotingandsupporting learning.Consequently,thereviewisconsideringhowLSCBsremitformultiagency trainingandlearningcanbestrengthenedtomaximisesharedunderstandingof eachagency'srolesandareasofexpertise,identifygoodandproblematicpractice issuesandspotestablishedoremergingproblemsandreducegapsandduplication inservices. Itisimportantthatthisincludes,butisnotrestrictedto,theirSCRfunction.This remainsakeymechanismformultiagencylearningtriggeredbythedeathor seriousinjuryofachildwhenabuseorneglectisknownorsuspectedtobea
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http://www.lga.gov.uk/lga/aio/13733907 http://www.adcs.org.uk/download/positionstatements/november09/ADCSpositionon inspection.pdf

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factor .Itisvitalthatwelearneffectivelyfromthesetragiccases(asexplained furtherbelow).Yettheyarenotrepresentativeofthemajorityofprofessionalwork withfamilies.Moreover,suchtragediesaretraumaticforallinvolved,familiesand professionals,andthereforetheiraftermathislikelytobeamoredifficultcontext withinwhichlearningcanbeachieved. ThisisonereasonwhythereviewistreatingSCRsasasubsetofabroaderrangeof multiagencytrainingandlearningactivities.Asecondreasonisthatevidencefrom othersectorssuggeststhatthesamemethodsforreviewingandlearningfrom practicecanbeusedonanyexamplesofprofessionalpractice,andnotjustserious incidents.Consequently,thequestionofwhatmethodswouldbebeneficialto multiagencytrainingandlearningaredealtwithfirst,beforefocusingspecificallyon SCRs,thenchilddeathreviewprocesses,andlastlyotherkindsoflearning.

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5.35 Theremitofthisreviewincludedarequesttoconsiderwhethertherewere alternativewaysoflearningfromexperienceusedinothersectorsthatcouldbe moreeffective.ThesystemsapproachadoptedbythehealthsectorinEnglandand inmanyothercountriesoffersarelevantandwellevidencedmethod. Overadecadeago,anexpertgroupchairedbytheChiefMedicalOfficer,described theNHSashavinganoldfashionedapproachtoorganisationallearning. Healthcarewasseenasneedingtocatchupwithotherhighriskorsafetycritical industries,suchascivilaviation,intermsofhowitwentaboutreducingincidentsof avoidableharmtopatientsfromerrorsandmistakes. Inthe1990sitwasincreasinglyrealisedthatmostharmwasnotdone deliberately,negligentlyorthroughseriousincompetencebutthroughnormally competentcliniciansworkingininadequatesystems119. 5.37 Anorganisationwithamemorythe2000reportbytheDepartmentofHealthwhich summarisesthischangeofdirectionisnowjudgedasaseminaldocumentand,since itspublication,theNHShasbecomeaworldpioneerinthefieldofpatientsafety. IthasinitiatedtheestablishmentofaWorldHealthOrganisation(WHO)patient safetyprogramme120.Thisreviewconsidersthattherearesubstantialbenefitsfor thechildprotectionsystemtogainbymovingintotheslipstreamofthese developmentsandbuildingontheexperienceinhealth. Safetymanagementinotherhighrisksectorshasmovedtotheviewthatblaming individualsforerrorsandmistakeshasbeenunhelpfulandcounterproductive, producinginadequatelearningand,insomecases,creatingnewobstaclesto improvingperformance.Instead,errorsandmistakesarebeingacceptedas inevitableandtobeexpectedinacomplexworkenvironment.Inplaceofablame culturewherepeopletrytoconcealanyflaws,itisbetterforpeopletoworkhardto identifyerrorsearlysothattheycanthenbemanagedorminimised,oftenthrough
WorkingTogether(2010),8.9. HouseofCommonsHealthCommittee(2009),PatientSafety,SixthReportofSession200809, Vol.1,page9 120 http://www.who.int/patientsafety/en/
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redesign.Thisapproachdrawsonhumanfactorsresearchwhichaimstodesignand redesignprocessesanddraftproceduresthatarebasedonrealisticconceptionsof humanstrengthsandweaknesses,sothatbroadercompatibilitycanbeachieved betweenpeople,technology,andworkenvironments.Thisinnovativethinkingwas encapsulatedinthetitleofaparallelhealthpublicationfromtheUnitedStates:To errishuman(1999)whicharguedcogentlythattheissueofmedicalerrorswasnot abadappleproblemandthatmistakescanbestbepreventedbydesigningthe healthsystematalllevelstomakeitsafermakeitharderforpeopletodo somethingwrongandeasierforthemtodoitright121. Thisbasictheoreticalapproachtounderstandinghumanperformancehasledtothe developmentofanumberofdifferentmodelsforlearningfrompracticethrough reviewingprofessionalpracticeincontext,usingthelensofaparticularincidentor case.TheNationalPatientSafetyAgencyusesthetermRootCauseAnalysisto describethemodeltheyhavedevelopedforinvestigatingpatientsafetyincidents. ProfessorCharlesVincentandcolleaguesatImperialCollegeLondon,calltheir Londonprotocolasystemsapproach122.Theyareappliedtoawholerangeofcases fromnoharmtothoseendingintragicoutcomes.TheSocialCareInstitutefor Excellence(SCIE)hasledworktoadapttheseapproachesformultiagencychildrens services,withtheirLearningTogethermodel,andisalsoseekingtousethemodel incaseswithgoodoutcomes,orselectedtoreflectparticularpracticethemes,as wellasthoselinkedtopooroutcomes123. Thereviewisthereforeconsideringwhethertorecommendadoptingthesystems approachforallmultiagencycasereviews,buildingonthehealthsectorexperience, andwillmakerecommendationsabouttheimplicationsfortraining,conducting reviews,andforfacilitatinglocalandnationallearning.TheSCIEmodeloffersa workingprototypebutitisstillatanearlydevelopmentalstagecomparedtoother sectorsandwewanttoencourageapluralityofsimilarmodels.Itistherefore importantthatwhateverthereviewrecommendsencouragesmethodological development. Thereviewoptstocallthisasystemsapproach,notusingthetermRootCause Analysiswhichiscommoninthehealthsectorbecausethelattertermhasbeen foundtobemisleading.Itimpliesthatthereisasinglerootcausetoanyincident whentypicallyincidentsarisefromachainofeventsandtheinteractionofanumber offactors.Italsoimpliesthatthepurposeoftheinvestigationisrestrictedtofinding outthecauseoftheparticularincidentunderinvestigationratherthanlearning aboutstrengthsandweaknessesofthesystemmorebroadly,andhowitmaybe improvedinfuture.Puttingthewordsysteminthenamedrawsattentiontoakey featureofthemodeltheopportunityitprovidesforstudyingthewholesystem, learningnotjustofflawsbutalsoaboutwhatisworkingwell.

Toerrishuman(1999),p.2 http://www.providersedge.com/ehdocs/ehr_articles/To_Err_Is_Human Building_a_Safer_Health_SystemReportBrief.pdf 122 TaylorAdamsandVincent,2004 http://www.ihi.org/IHI/Topics/PatientSafety/SafetyGeneral/Tools/SystemsAnalysisofClinicalIncidents TheLondonProtocol.htm 123 Fishetal2009http://www.scie.org.uk/publications/guides/guide24/index.asp

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SeriousCaseReviews(SCRs)
5.42 SCRsarerequiredbytheLocalSafeguardingChildrenBoardsRegulations2006,and theprocessesaresetoutinChapter8ofWorkingTogethertoSafeguardChildren (2010)124.Aswellasprovidinglocalandnationallearning,theycancontributetothe dischargeofthestate'sobligationsunderArticle2oftheEuropeanConventionon HumanRights. Asnotedinthefirstreport,therehasbeenconsiderablecriticismofthecurrent processesforundertakingSCRs.Evidencefromprofessionalswhohavebeen involvedinconductingSCRsrevealedthat: Thereisanoverwhelmingsensethatthereistoomuchemphasisongetting theprocessright,ratherthanonimprovingoutcomesforchildren,ofthe processbeingdrivenbyfearofgettingitwrong,ofpractitionersandmanagers feelingmorecriticisedthansupportedbytheprocess,andthattheOfsted evaluationsdonotsupportlearning125. Keyproblemsinclude: lackofengagementwithfrontlinestaff; absenceoftransparentmethodologyandcommontrainingleadingto problematicvariability; shallownessandsustainabilityoflearning; problematicindividualmanagementreview(IMR)andoverviewreport structuringoftheprocessinthestatutoryguidance;and noconsistencyinthepresentationoffindings,makingnationalcollation difficult. Fromexperienceinotherfields,thesystemsmethodologyiscapableofaddressing theseproblems.Anotherpossibleadvantagerelatestothenewstatutory requirementthatSCRoverviewreportsarepublished.Thishascausedsome concernthat,despiteanonymisation,childrenmaybereidentifiable.Asystems report,becauseofitsfocusonunderstandingwhyprofessionalsactedastheydid, makesitpossibletowriteupandpublishthereviewwithaprimaryfocuson professionalpracticeandwiththedetailedstoryofthechildandfamilybeingless visible. Consistentwiththemovetoreducethebureaucraticburdenofinspection,the reviewisrecommendingthatOfstedsevaluationsofSCRsshouldendinduecourse. Instead,thequalityoflearningmoregenerallyshouldbegivengreatercoverage withintheoverallinspectionprocess.Thereviewisexploringhowthequalityof learningfromSCRscaninsteadbestrengthenedandisconsidering: theestablishmentofanationaltrainingprogrammeinthesystemsapproach andresearchmethods;
http://www.education.gov.uk/publications/standard/publicationDetail/page1/DCSF003052010 Sidebotham,P.(2010),Reportofaresearchstudyonthemethodsoflearninglessonsnationally fromSCRs(availableonlineat http://www.education.gov.uk/publications/standard/publicationDetail/Page1/DFERR037)
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thecreationofacentralpoolofreviewerstosupportlocalareas; thebenefitsofanationalarbiterforcasereviewstandardsandmethods; thecreationofastandardisedtypologyforpresentationoffindings;and whetherthereisabasistorevisecriteriaforinitiatingSCRs.

Thereviewwillalsoconsidertheestablishmentofanationalbody,similartothe NationalPatientSafetyAgency,thatwillsupportnationalandlocallearning,give trainingtoreviewerstoconductSCRs,providequalityassurance,andcollatefindings ofsuchreviewstoenablenationallearning.

Developingotherkindsofreviewsandlearningactivity
5.48 Inthelightofthebenefitsoflearningfromawholerangeofpracticeexperience,the reviewisconsideringhowLSCBsandotherscouldbestbesupportedtoconductcase reviewsusingasystemsapproachforsimplediagnosticchecksonhowtheirchild protectionsystemisfunctioning,perhapsinresponsetonearmissesorevenas routinehealthchecks. Therealsoseemstobeaneedtogenerateandencourageothermethodsofinquiry otherthanathoroughcasereviewapproach.Thereforethereviewwillalsobe consideringhowtoprovideLSCBswitharangeofwaysofstudyingpracticeand learning.

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Childdeathreviewprocess
5.50 Thechilddeathreviewprocess,whichhasbeenstatutorysinceApril2008,involves professionalsandagenciesworkingtogethertoreviewthedeathsofallchildrenand tousethisinformationtopreventchilddeathswherepossible.EachLSCBis responsiblefordisseminatingthelessonslearnedfromitschilddeathreviewstoall relevantorganisationssotheycanactonanyrecommendationstoimprovepolicy, professionalpracticeandinteragencyworkingtosafeguardandpromotethe welfareofchildren. Thereviewhasbeenmadeawareoftwomajorconcernsaboutthechilddeath reviewprocess.First,childdeathreviewdataarecurrentlycollectedbythe DepartmentforEducationfromLSCBsthroughanannualdatacollection,which currentlycoversthenumberofchilddeathreviewscompletedbyeachpaneland thenumberofthesedeathswhichwereassessedaspreventable.Thereisevidence ofgoodlocallearningfromthesereviewsbut,currently,thereisnonational mechanisminplaceforsystematicallyanalysing,collating,anddisseminatingthat locallearning.Thereisageneralconsensusfromprofessionalsinthesectorthatthe lessonslearnedfromallchilddeathreviewsshouldbebetterdisseminated, especiallybetweenLSCBsandatanationallevel.Thereviewthereforeintendsto considerhowthismightbeachieved. Secondly,thereisaquestionabouthowthechilddeathreviewprocessandSCR processesfittogetherandthatthereisscopeforareductioninduplicationand bureaucracybyaligningthetwoprocessesbetter.Thisisthereforeanissuethatthe reviewwillbeconsideringinmoredetail.

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RevisingWorkingTogethertoSafeguardChildren(2010)
5.53 WorkingTogethersetsouthoworganisationsandindividualsshouldworktogether tosafeguardandpromotethewelfareofchildrenandyoungpeopleinaccordance withtheChildrenAct1989andtheChildrenAct2004.Asthestatutoryguidance itselfsays,itisimportantthatallpractitionersworkingtogethertosafeguard childrenandyoungpeopleunderstandfullytheirresponsibilitiesanddutiesassetout inprimarylegislationandassociatedregulationsandguidance126.Thereview acknowledgestheimportanceofhavingasinglesetofrulesthatallorganisations, includingprofessionalbodies,voluntaryandprivatesectorprovidersand governmentdepartments,followandareclearontheirrespectiveresponsibilities forprotectingchildrenfromharm. Asignificantpartofthereviewsremithowever,istoremoveunnecessary bureaucracyandguidance127.Aswashighlightedintheinitialreport,Working TogethertoSafeguardChildren(2010),theGovernmentsstatutoryguidanceon childprotection,isnow55timeslongerthanitwasin1974128.Submissionstothe reviewhavestronglysuggestedthatthecurrentguidancehasbecometoolongtobe practicallyuseful.Thismaybeactivelydangerous:researchhasshownthatthick manualsofresultscanbeparalysingbecausetheypreventmanagersfrommoving quicklyenoughtoseizeopportunities129. Oneofthereasonsforthegrowthinstatutoryguidancehasbeentheinclusionof muchprofessionaladvice.Whilstintendedtosupportgoodpractice,thereisarisk thatthisapproachhasactuallycontributedtothedeprofessionalisationofchild protection,asthoseworkinginthefieldfeelincreasinglyobligedtodothingsbythe bookratherthanusetheirprofessionaljudgmenttoassessindependentlychildrens needs(asdiscussedinchapterfour,procedurescandiscouragethedevelopmentof expertise).Consequently,inthenextphaseofthereportthereviewwillbe consideringwhetherWorkingTogethershoulddistinguishmoreclearlybetweenthe rulesthatareessentialtoallowdifferentprofessionalstoworktogether constructivelyandguidancethatisbestformulatedasprinciplesthatprofessionals applyintelligentlyinparticularcases. CurrentlyWorkingTogethertradestooeasilyinthelanguageofcertaintyinanarea which,asthefirstreportestablished,isveryfarfromcertain.Thereviewwill considerhowstatutoryguidancecanbetterreflecttheinherentrisksand uncertaintiesinvolvedinchildprotection.InordertoassesshowWorkingTogether canbesimplifiedandimproved,thereviewhasassembledagroupof representativesfromrelevantprofessionalbodies.Thisgroupwilladvisethereview onhowstatutoryguidancemightbettersupportthepracticalneedsofthe professionsworkingtoprotectchildrenandconsiderwhatrecommendationsthe reviewmightmakeconcerningWorkingTogethersfutureformandcontent,and howtheseprofessionalscanplayamorepermanentroleinthedevelopmentof
WorkingTogethertoSafeguardChildren(2010)P7 http://www.education.gov.uk/news/news/~/media/Files/lacuna/news/munro review/michaelgovetoeileenmunro.ashx 128 Parton,N.(2010),TheIncreasingComplexityofWorkingTogethertoSafeguardChildrenin England. 129 Eisenhardt&Sull,Strategyassimplerules,HarvardBusinessReview(2001).
127 126

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professionalguidance.

FamilyJusticeReview
5.57 AsLSCBsgivegreaterattentiontoimprovingchildrensjourneystheyshould examinethecontributionthatlocalagenciescanmaketoimprovethetimelinessof thecourtprocessforchildren.Theevidencetothisreviewisthattheprocessfor thechildandthefamilyisfraughtwithdelayandthatchildrenandfamilies experiencethisasanactivitydonetothemratherthanoneinwhichtheyareactive participants. Casestudy1: Thefamilyhasbeenknowntochildrensservicessince1997,concernsarisingmainly fromdomesticviolencebetweentheadultsinthehousehold,childrenwitnessingthe violenceaswellasallegationsofviolencetowardsthechildren.Thecaseinvolved fourchildrenandthetimeelapsedfromapplicationstothefinalhearingwas405 daysforthreeofthechildrenand833daysforthefourthchild. 2monthsofdelayinmakingdecisionsinthebestinterestsofachildoryoung personequatesto1%ofchildhoodthatcannotberestored130. Ifweusethisequationinthesetwocasesthequickesttimescaletoresolution amountsto6.5%ofthosechildrenschildhoodandtheslowestto14%oftheir childhood.Forthechildreninvolvedinthesecasesthelengthoftheirjourney throughcareproceedingsisunacceptablylong. TheFamilyJusticeReviewislookingatthewholejusticesystemforchildrenand families.AninterimreportisbeingpreparedforpublicationinMarch2011which willoutlinethereviewsinitialproposalsforreform.Delayis,ofcourse,acentral concerntothatreviewtoo.TheFamilyJusticeReviewwillfocusonthechilds
130

Casestudy2: Thiscaseinvolvedthreechildrenaged7,6and4yrs.TheLocalAuthorityhashad involvementwiththefamilysince2002.Therewereconcernsrelatedtothe childrensemotional,physical,developmentalandpsychologicalwellbeinginthe careoftheirparents.Theelapsedtimefromapplicationtofinalhearingwas650 days.

DistrictJudgeNickCrichtonstated:

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DistrictJudgeCrichton(1July2010)FamilyDrugsandAlcoholCourt,WellsSt,London.

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experienceofthecourtprocessbutalsoaddresshowrelatedaspectsoflocal authorityprocedures,suchaspermanencyandadoptionplanning,canbeimproved tofacilitatespeediercareproceedings. Thisreviewwillconcentrateonwhatlocalauthoritiesandchildrenssocialcare servicescandotoimproveaspectsofthesystemwhicharewithintheircontrol. Evidencecollatedinconsultationwitharangeofrelevantagenciesandprofessionals suggeststhefactorsthatwouldhaveasignificantandpositiveimpactonthe timelinessofcareproceedings,therebymakingthisjourneybetterforchildrenand families,arethesameaspectsthatwouldaddvalueinallworkwithchildrenand families: socialworkerswhoarewellprepared,knowledgeableaboutachildand family,articulateandconfidentintheirevidenceandconfidentintheir professionaljudgements; processesinplacesothatchildrenandyoungpeoplehaveavoice throughoutpreproceedingsandthroughcareproceedings; constructivechallengeandauthorisationarrangementswithinthelocal authoritysothatonlytherightcasesarebroughtintocareproceedings; continuityofsocialworkersallocatedtocasesinproceedings; effectiveprecourtworkincludingFamilyGroupConferencingandfull explorationofallpotentialfamilycarers; effectiveparallelplanningandpanelprocessesthathavetimelinessforthe childandthechildsjourneycentraltotheirpurposeandfunction; proactiveandhighlyefficientlocalauthoritylegalservicedepartments composedofexperiencedchildcarelawyers,sothatgoodqualityadviceis availabletosocialworkers; effectiveengagementintheFamilyJusticeSystemsothatlearningbetween thecourtsandthelocalauthoritytakesplaceandinformspracticeonanon goingbasis;and appropriatescrutinyandoversightofcareplanningandfinalcareplansby thelocalauthority,includingagreedlevelsofsupportandresourcesavailable todeliverthem. Achievingasystemcharacterisedbythesefactorswillbedependentonthegrowing expertiseofsocialworkandmorechildcentredmanagementdescribedinchapters threeandfour.

Conclusion
5.60 Theperformancemanagement,leadershipandaccountabilitysystemsinlocalareas haveasignificantimpactonthedeliveryofchildprotectionservices.Asthischapter hasoutlined,thelocalleadershipteamhasavitalroletoplayinsettingthetonefor thewaythatservicesaredeliveredintheirlocality.However,nomatterhowgood theleadership,problemswillstillariseifroles,responsibilitiesandaccountabilities arenotclearlysetoutandunderstoodbyallplayersinthesystem. TheroleoftheDirectorofChildrensServicesasthekeypointofprofessional accountabilityforchildprotectionservicesiscriticallyimportantanditisvitalthatit remainsso.Lessclear,however,aretheaccountabilitiesinnationalandlocalhealth

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structures,thepolice,localgovernmentandeducationgiventheCoalition Governmentsextensiveprogrammeofreformofpublicservices.Seekingtoachieve greaterclarityinthisareawillbeanimportantareaoffocusforthereviewinitsfinal phase. Leadershipandaccountabilitiescanbeseentoalargeextenttobedeterminedby localdecisions,albeitwithsomeguidancefromGovernment.Rulesand performancemanagementregimesare,however,devisedcentrallyandcanbe consideredasexternalfactorsthathaveanincredibleimpactonthewaythat servicesaredeliveredandprioritisedlocally.Statutoryguidance,inspectionand performancemeasuresanddataallhaveabigimpactonlocalpractice,whether becauseofactualrestrictionsorperceivedones.Thereisclearscopefor considerablereformsintheseareasthatwillnotonlyreducebureaucraticburdens, butalsohelptodrivelearningandadaptivelocalsystemsthatarebetterableto focusonpracticequalityandoutcomesforchildren. Buildingonthethemeofcreatinglearningandadaptiveorganisationsitisalso extremelyimportanttolearneffectivelyfromtragiccasesofseriouschildinjuryor death.Initsfinalphase,thereviewwillexploretheissuesaroundSeriousCase Reviewsandhowtheymightbereformed.

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ChapterSix:Conclusion
6.1 Thisinterimreporthasusedthestructureofachildsjourneythroughthesystem fromneedingtoreceivinghelptosetoutapictureofwhatagoodchildprotection systemshouldlooklike.Thefirstreportsummarisedtheproblemsinthecurrent childprotectionsystemsothisinterimreporthasoutlinedreformsthatcouldhelp getclosertotheideal,wherethesystemkeepsaclearfocusonchildrensbest intereststhroughoutanddevelopstheexpertiseandtheorganisationalenvironment thathelpsprofessionalsworkingwithchildren,youngpeopleandfamiliestoprovide moreeffectivehelp. Thereviewhasseenevidenceofexcellentpracticeandthisillustrateshowcomplex thesystemis.Thefirstreportanalysedfactorsthatcreatedobstaclestogood practice,butthesedonotdeterminepoorpracticeineverycase.Whereexcellent practiceflourishes,itisduetocourageousandintelligenteffortstocounteractthe factorsthatencourageadefensive,compliancedrivenservice.Forexample,one leaderreportedhowvulnerabletheyfeltbecauseifachilddied,asmighthappenin anylocality,theywouldbevulnerabletoextracriticismbecausetheirpracticewas nonstandard. Thefollowingareasofreformthenarenotpresentedasifyoudoxthenywill followbutthat,rememberingthecomplexityoftheworld,changingpracticeat thesepointscouldcontributetodevelopingasystemthatwasmorechildcentred andaboutlearningratherthancompliancedrivenandblaming: Earlyhelp:itisclearlyinchildrensbestinterestthathelpisprovidedquickly. Thereforethereviewendorsesearlyhelpandpreventativeservicesthatseek toreducetheincidenceofmaltreatmentandrespondquicklytolowlevel abuseandneglect.Thereviewsmainconcernistohelpprofessionals workinginthoseservicesdecide,whentheyhaveworriesaboutachild, whetherthechildmightbesufferingmaltreatmentofadegreethatneeds referraltoachildprotectionservice.Thereviewhasbeenimpressedby thoselocalitieswhichhavedevelopedmultiagencyteamsincludingsocial workexpertisetohelpprofessionalsinuniversalandearlysupportservices todecidewhethertorefertochildrenssocialcareorwhetherthefamily wouldbebetterhelpedbyotherpreventativeservices. Socialworkexpertise:thereviewendorsestheSocialWorkReformBoards capabilitiesframeworkthatdetailsthecoreingredientsofskills,knowledge andvaluesneededforgoodpractice.Thereviewwilldraftasetofthe specialistcapabilitiesneededinchildprotectionsocialwork.Reflectingon thesheerscaleoftheskillsandknowledgethatareneededtoprovide effectivehelpfortherangeofchildrensneeds,thereviewisledtoquestion thetraditionalconceptofanindividualsocialworkercarryingacaseloadof manyfamilies,receivingonlyminimalsupervision,muchofwhichisoverly concernedwithmanagementissuesthanprofessionalcaseworkanalysis. Thereview,againbuildingontheSocialWorkReformBoards recommendations,willexplorehowcareerstructurescouldbealteredto increasethelevelsofexpertise.

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Managingsocialwork:thisreportemphasiseshowmuchthequalityofany workersperformanceisshapedbytheorganisationalcontext.Socialwork managersplayacrucialroleinsupervisingfrontlinepracticetoenableand encourageahighlevelofcriticalreflectionthatimprovesthequalityof assessments,inprovidingresourcesandtoolsthatmakeiteasierforthe frontlineworkertodothejobwell,forexample,offeringguidancethat allowssocialworkerstostayawareofthevarietyofneedsofchildrenwhile remindingthemofthebasicprinciplesofgoodpractice.Thereviewis consideringhowprofessionalguidancecanbeseparatedoutfromstatutory guidance,andthiswillinformtheworktominimiseruleswhereappropriate andmaximisetheopportunitiestoexerciseprofessionaljudgment,allowing worktobecentredontheuniquechild.Socialworkershavebeengiven numeroustoolstohelptheirpractice,butdesignneedstobeusercentred, andthereviewisworkingwithpractitionersonusercentreddesignof softwareandofassessmentforms. Alearningsystem:thechildprotectionsystemismultiagencyandmulti professional.TheLSCBhasamajorroleinmaximisingtheeffectivenessof thechildprotectionsystemlocally.Currentlythesystemisweakatgetting feedbackonchildrensoutcomesandsothereviewisconsideringhowthe effectivenessofhelpcanbebetterassessed.TheLSCBhasaroleinmulti agencylearningandtraining.SCRsarecurrentlythemostprominentaspect ofthisandthereviewisconsideringwhethertoadoptthesystemsapproach usedinhealthcareby,forexample,theNationalPatientSafetyAgency.This theoreticalapproachisalsovaluableforlearningfrompracticeoncasesthat donotendwithatragicoutcome.Inspectionprocesseshavebeen consideredbymanytobeasignificantfactorindrivingacomplianceculture. ThereviewisworkingwithOfstedonamorechildcentred,qualityfocused inspectionprocess.Therewasaconsensusinthefeedbacktothereview thatannouncedinspectionscreatecounterproductiveincentivesandthat theyshouldend,withunannouncedvisitsextendedtoexaminethefullrange ofchildrensservices. Althoughthereformareashavebeenlistedindividually,itistheircumulativeeffect thatwillbeimportant.Nosinglereformcansolveevenaspecificproblem,buteach cancontributetoremovingtheproblematicaspectsofthecurrentsystemand gettingclosertotheidealthathasbeenoutlined.Removingthelevelofprescription willrequirelocalleadersandpractitionerstotakegreaterresponsibilityforthe judgmentsanddecisionstheymake.Thejourneyauthoritiesmentionedthroughout thisreportwillbesignificantlearningsitesforsomeoftheelementsofchangeand reformthatareneeded.Noticingthereareproblemsinlocalchildprotection systemsandinnovatingtoimprovetheeffectivenessofhelptoprotectchildren,is evidenceofpreciselythesortofadaptivesystemthatchildrensservicesmight aspiretobecome. Inthemanydiscussionsthereviewhashad,therehasbeenatendencytoblamethe currentproblemsononeortwokeyfactorsIfonlyICSwastakenaway.Ifonly Ofsteddidnt.Alteringtheseindividuallywillnotrectifytheproblems.The underlyingrealityisthatchangingfamilybehaviourisdifficultandwearedealing

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withuncertainty,sothatpredictionandpreventionofchildmaltreatmentis necessarilyafallibleprocess.Theunderstandablepublicdistresswhenachilddies, leadingtothecastigationoftheworkersinvolved,isacontinuingdriverofdefensive practicethatfailstoprioritisethechildsbestinterests. Whilstitisabsolutelyrightthatcareistakeninanyreformofthechildprotection systemtoreduceprescription,equalcaremustbetakennottoattributethesafety ofchildrentocompliancewithaprescriptiveframeworkforpractice.Thefive authoritieswhohaveappliedtotrialspecificlocalflexibilitiestoWorkingTogetherto SafeguardChildren,aredemonstratingtheresponsibleuseofjudgmentandseeking solutionstotheproblemsinpracticetheyhaveidentified.Theearlyevidencefrom thesetrialswill,asmentionedearlier,beincludedinthefinalreportofthisreview. Thisreviewistakingplaceatatimeofmajorreforminalloftherelevantpublic services,whereseriousfiscalconstraintsarebeingappliedandwithmajorworkforce issuesparticularlyinthefieldofsocialwork.Allofthesechangesmaymakethe idealchildprotectionsystemlookfurtheraway,butthereviewconsiderswecan begintoworkonsomekeyvariablesthatwillcontributetothehelpchildrenreceive. Thedraftsetofprinciplesdescribedatthebeginningofthereportarealsoan importantemergingfoundationofachildprotectionsystemthatislesstiedto prescriptionandtruststhevalueofprofessionaljudgment. Thereviewisconsideringwhether,inlightofthecurrentradicalreformsofservices, thereisaneedforapanel,composedoftherelevantprofessionswithinthechild protectionsystem,toadviseGovernmentandtheprofessionsonhowthedifferent partsofthechildprotectionsystemareinteractingandwhetherproblemsare emerging. Thereviewwillbeseekingfeedbackabouthowtodevelopthereformsoutlinedin thisreportandwillworkwitharangeofgroupstodevelopitsthinking.

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AnnexA:ACPOsStatementofRisk Principles
Principle1: Thewillingnesstomakedecisionsinconditionsofuncertainty(i.e.risktaking)isa coreprofessionalrequirementofallmembersofthePoliceService. Principle2: Maintainingorachievingthesafety,securityandwellbeingofindividualsand communitiesisaprimaryconsiderationinriskdecisionmaking. Principle3: Risktakinginvolvesjudgmentandbalance,withdecisionmakersrequiredto considerthevalueandlikelihoodofthepossiblebenefitsofaparticulardecision againsttheseriousnessandlikelihoodofthepossibleharms. Principle4: Harmcanneverbetotallyprevented.Riskdecisionsshould,therefore,bejudgedby thequalityofthedecisionmaking,notbytheoutcome. Principle5: Takingriskdecisions,andreviewingothersriskdecisionmaking,isdifficultso accountshouldbetakenofwhethertheyinvolveddilemmas,emergencies,were partofasequenceofdecisionsormightappropriatelybetakenbyotheragencies. Principle6: ThestandardexpectedandrequiredofmembersofthePoliceServiceisthattheir riskdecisionsshouldbeconsistentwiththoseabodyofofficersofsimilarrank, specialismorexperiencewouldhavetakeninthesamecircumstances. Principle7: Whethertorecordadecisionisariskdecisioninitselfwhichshould,toalarge extent,belefttoprofessionaljudgment.Thedecisionwhetherornottomakea record,however,andtheextentofthatrecord,shouldbemadeafterconsidering thelikelihoodofharmoccurringanditsseriousness. Principle8: Toreduceriskaversionandimprovedecisionmaking,policingneedsaculturethat learnsfromsuccessesaswellasfailures.Goodrisktakingshouldbeidentified, celebratedandshared. Principle9: Sincegoodrisktakingdependsuponqualityinformation,thePoliceServicewillwork withpartneragenciesandotherstosharerelevantinformationaboutpeoplewho poseriskorpeoplewhoarevulnerabletotheriskofharm. Principle10:

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MembersofthePoliceServicewhomakedecisionsconsistentwiththeseprinciples shouldreceivetheencouragement,approvalandsupportoftheirorganisation.

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AnnexB:TowerHamletsDraft RecordForUnderstandingFamilies
ThisdocumentoutlinestheTowerHamletsapproachtounderstandingchildrenand families. (ImportantNote:theboxesinthisformhavebeenshortenedandtheformatchangedfor thepurposesofincludingitasanannextothisreport). PrinciplesandValues Outlined below are the key principles, values and processes that will underpin the work undertakenwithchildrenandfamilies. CoreValuesthatunderpinthispracticeframework: Eachfamilyisunique Ineveryfamily(andthosewithinthis)therearestrengthsanddeficits Everyfamilymemberneedstoberespected Autonomy SocialWorkprocesses Thepracticeframeworksupportsethicalandvaluebasedsocialworkpractice: Weneedtooperateinamannerthatenablesthefamilytoremaincooperativein potentiallydistressingcircumstances Weneedtoinvolvethefamilyinapracticepartnership TheFamilyiscentraltoourassessment/understandingprocess Asystematicapproachtotheworkisundertaken,recognisingthefamilyasasystem whilebeingattentivetodynamics Asolutionfocussedapproachissupportedbythepracticeframework Theassessmentprocess(developingunderstanding)isachangeprocess;itisaform ofdirectintervention,thesocialworkerisanagentofchange Understandingafamilysituation,theirhistoryandcurrentcircumstancesiscomplex and requires a high level of engagement / interaction between the social worker andfamily;socialworkerandtheirmanager Child welfare situations are complex and require sensitive exploration with the familytounderstandtheirfamilysituation. Feeling attached and belonging, through sets of relationships is a central tenet of familylife.Withthisinmind,thesocialworkprocessmustgivedueweighttothese factorsthroughtheengagementprocess The social worker needs to understand the totality of family life, through thinking andpractisingecologically Maintainingacuriosityaboutfamilylifeisakeypracticetenet Criticalandengagedsupervisionsupportsthemaintenanceofacuriousandrobust practice

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The practice framework supports the newly qualified practitioner alongside the experiencedsocialworker

SocialWorkvalues An understanding and focus on the child and the childs experience is at the heart of our work.Thepracticeshouldtellthechildsstory. Promotesafamilybasedassessmentmethodologywithinanecologicalcontext;whilebeing familyledandchildfocussed. Moredirectandparticipatoryworkwithfamilies. Promotingandprioritisinginteragencyinvolvementintheworkundertakenthroughsocial workplansthatarewrittenwithfamiliesinmind. Frameworkforunderstanding Familymembership Detailsofallsubjectchild/children/youngperson(s) ID Name DOB/ Gender Disability Ethnicity Religion EDD Family/householdcompositionandsignificantothers Name DOB/ Gender Relationship PR Ethnicity Religion EDD Child/children/youngperson(s)/familyaddress

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Telephoneno

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Professionalscurrentlyinvolvedwiththefamily Name Role Agency

Reasonforundertakingthispieceofwork/presentingissues

Telephone number(s)

Personworking Contributed with

Initialplanandtimeframe Thisinitialplanwillbesubjecttoreviewbythesocialworkerandmanager.Please documentthetimeframe. ChildProtection IsthisworkbeingconductedaspartofaS47investigation? Yes No PleaseindicateifthisassessmentistobepresentedatanInitialChildProtection Conferencewithinthenext15days Yes No

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Familybackground/history Child'sprofile/story

Familytree

Personalandprofessionalrelationships(ecomap)

Familyhistoryandunderstandingoffamilyrelationships Timeline/significantevents Date Event

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Professional background and involvement Previoussocialworkandprofessionalinvolvement.Outlinechangesachievedand outcomes. Sphereofunderstandingthechildandfamiliescurrentsituation Inthissection,youneedtodrawonthehistoricalunderstandingdevelopedandconsider/ addressthefollowingareas: . Addresscurrentreasonforinvolvementincontextofthehistory Explorationofperspectivesfamily,professionalsandsocialworker Processofdeepeningunderstanding/effectingandaffectingchangeandsupport required Sphereofunderstanding Childprotectionrisks Familyresilienceandprotectionfactors

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Analysis Recommendations (OutlineChildProtectionplanifappropriate) Commentsandsignatures Dateassessmentstarted// Socialworker Name Date // Signature Manager Name Comments

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Date

//

Signature Child/family Reportdiscussedwithchild/children/youngperson(s): Yes No Ifno,whenwillthisbe done // Reportdiscussedwithparent(s)/carer(s): Yes No Ifno,whenwillthisbe done // Comments Date // Signature(s)

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DistributionofRecordforUnderstandingFamilies Giventochild/children/youngperson(s)asappropriate: Yes No Date // Giventofamilymembersasappropriate: Yes No Date // Social work intervention plan Actiontoundertake Bywhom

Bywhen

 (Draft)GuidanceforUnderstandingFamilies Background The last decade has seen a significant increase in demand for child welfare services in all western nations. Responding to this demand, largely through technorationalist solutions, and while well intentioned, has resulted in a highly bureaucratised practice context. Responding to this, with a practice emphasis on knowledge and social work values, Tower HamletsChildrensSocialCarehasdevelopedapracticeframeworkprincipallyaimedatre orientatingsocialworktoamodeloffamilyparticipationintheassessmentandintervention ofchildwelfareconcerns. Apracticeframeworkintegratesempiricalresearch,practicetheories,ethicalprinciplesand experientialknowledgeinacompactandconvenientformatthathelpspractitionerstouse the knowledge and principles to inform their everyday work| (Connolly and Healy, 2009, p32). Importantly, the framework is accessible to social workers, their managers, and the familiesandchildrenweservice.Apracticeprincipleofenablingsocialworkerstodrawon sets of knowledge both internal to the organisation and through research and their own practice wisdom is an important departure from the formulaic recording encouraged throughICS. InadditiontotheCorevalues,SocialWorkprocessesandSocialWorkvaluesthataresetout atthetopofthisannex,thereareanumberofkeyprinciplesandvaluesthatunderpinthis framework;outlinedbelow. Utilisingthenewframework ThenewformatbuildsontheICSformsreviewundertakenandconcludedinApril2010.A key aim was to reduce the bureaucracy of the assessment format and to promote social workeranalyticalthinkinganddecisionmaking. Utilisingthisnewframeworkwillbereenforcedthroughtheorganisationthroughpractice, supervision,qualityassuranceandresearch. Tools Genograms (Family Tree), eco maps and a purposeful chronology are essential in our understanding of children and their families. Family tree = genogram Personal and professionalrelationships=ecomap. Timeframesforthework Should it be necessary to proceed under the mandate of Section 47, line manager consultationshouldtakeplaceimmediately.Thespecificguidanceandtimeframesforthe AllLondonChildProtectionProcedures/WorkingTogethershouldbefollowed. Ifachild/childrenbecomeslookedafter,guidancepertainingtoS20oftheChildrenAct1989 should be followed. In relation to CIN, timeframes for the work will be based on the professionaljudgmentofthesocialworkerinconjunctionwiththeirlinemanagerbasedon themeritsofeachcase.

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LBTHWellbeingModel Thisprovidesaconceptualframeworkfordeterminingtherequirementforstatutoryornon statutoryinvolvement. Supervision The role of supervision is crucial in supporting and embedding the new framework. Supervision offers reflective time and the practice framework encourages this through a criticalandtheoreticalengagementwiththechildwelfareissues. SocialWorkrecording High quality focussed recording activity is the cornerstone of good social work practice. Case recording describes and facilitates an analysis of the childs experience. Childrenandfamilyhaverightstoknowwhatisrecorded,whyandhowrecordingis utilisedinourjudgementsandethicaldecisionmaking. Recording is a foundation of our social work practice and a integral component of ourdirectworkandinterventionwithfamilies. Goodsocialworkrecordingneedstobebasedonsoundprofessionaljudgementand discretionaroundwhatisappropriateinformationtorecordbasedonthemeritsof thecase,onacasebycasebasis. TherecentMunroreviewhighlightssomedeficitswithcurrentrecordingpractices namely that ICS does not help enough in the creation of chronologies and the childsstory. SocialWorkplanning Socialworkplansareakeyvehiclethroughwhichfamiliesandchildrenunderstandwhatwe areworriedabout,andwhatneedstobechangeinorderforthestatutoryservicesnottobe involved; i.e. that the worry has been managed / mitigated sufficiently to ensure that the childisnolongerinharmsway.Thepracticeprincipleisthatasocialworkplaniswrittenfor everychild. Socialworkplansshould: Clearlyandthroughfamilyfriendlylanguagearticulatewhatneedstochangeforthe familyAsk:whatissafeenoughforthecasetobeclosed? Plansmustincorporatefamilystrengthsandresourcesasmethodofharmmitigation Encouragethingsthefamilyarealreadydoingtowardasaferfamilylife Includethefamilysideasforsafety Drawontheirfamilygoalsofwhattheywanttoachieve Plansmustdrawonthekeypeoplewhowilltakeactionifneeded(extendedfamily andfriends) Plansmustbeupdatedinlightoffamilyprogresstowardswhathasbeenidentified asneedingtochange

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Practiceinformedresearch The weaving of practice informed research with practice wisdom already held by social workers is a key tenet of the practice framework. According to Connolly and Smith (2010) childwelfareseniormanagersneedtoincorporateaknowledgeframeworkthatprovidesa succinctpictureofthekindofpracticethatresearchsuggestswoulddelivergoodoutcomes for children and their families. Incorporating our internal evidence around timeliness of assessmentsandinterventionsalongwiththeexternalpracticeinformedresearchavailable to practitioners is supported by the practice framework. Three practice based journals are availabletosocialworkstaffinthefrontlineassessmentteamstowardthisend. Language,Ethnicity,religionandculture Theuniquenessoffamilylifeincludestheiridentities,beliefsandvalues,theirabilities,ages, andethnoculturalbackgrounds.Itistheanalysisofhowthese aspectsoffamilylifeinter relateandcanaffecttheconstructionofchildrenthatisofkeyinteresttosocialworkers.For some families, the use of implements in the discipline of children needs to be addressed, and the conventional use of s47 alongside police mobilisation is not always necessary to intervene to assist families address and make sustained changes. It is through an understandingofthedynamicsofhowissuesofstratificationanddiversityinterrelatethat aidssocialworkanalysisaroundchildwelfareconcerns. Guidance to using the new framework The Tower Hamlets Practice Framework (our record for understanding families) is constructedinthreesections(followingfamilymembership). Familybackground/history Sphereofunderstandingthechildandfamiliescurrentsituation Futureplanninginvolvement (Seeonepagediagram) Frameworkforunderstandingfamilymembership In this section the children subject to the assessment/understanding process are included. Immediatehouseholdfamilymembersarealsolisted. Othersignificantfamilymembersorsignificantpeopleinthechildorchildrenslifewillalso be listed including nondomicile family members (This understanding is enhanced by the FamilyTreesection). Reasonforundertakingthispieceofwork/presentingissues ThesocialworkeroutlinesclearlyandsuccinctlythereasonforCSCinvolvement.Thesocial worker is expected to articulate how the referral has met a statutory threshold for CSC involvement.Weneedtostatewhatweareworriedabout.

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Initialplanandtimeframe In this section the social worker, in conjunction with their manager, plots the initial social workplanforundertakingthispiece ofworkandthetimeframe.Thisinformsthe practice beforeleavingtheoffice.Thisplanwilloutlinehowtheworkinthethreesectionsabovewill be undertaken. The social worker will (in consultation with their line manager) devises a timeframefortheworkbasedonajudgementofthefieldworkrequiredpluswriteuptime. It is acknowledged that assessments are fluid and are subject to change. At the outset a reviewmechanismwillbebuiltinforthesocialworkerandmanagertoagreeatimeframe whentheworkwillbereviewed.Thiswillallowforthesocialworkplanningtobereviewed andadaptedifappropriate(includingthetimeframeforthework). Within this section, there is an expectation that one formal review of the work is undertaken between social worker and manager. This needs to be documented in this section. Thesocialworkplanandtimeframewillbeexplicitandsharedwithfamilies.Itiscrucialthat families are clear about the worries we hold and the timeframe of the work to be undertaken. The practice rational including relevant guiding legislation must be rendered explicitforfamilies. In the absence of 7/10 day and 35 day timeframes, the timeframe needs to be rendered explicitwithfamiliestoensurethatthesocialworkwiththefamilyispurposefulanddoesnt drift.Delaysinthedeterminedtimeframeneedtobecogentlyexplainedandrecorded. ChildProtection IfthereisamandatetoproceedunderSection47,thissectionwillneedtobecompleted. This will determine the statutory time parameters for this component of the work (please refertoWorkingTogether/TheAllLondonChildProtectionProcedures). SectionOne Familybackground/history Itisfundamentalthatthechild/childrensubjecttotheassessment/understandingprocess are paramount and kept firmly in mind by the social worker. Munro (2010) notes that childrenhavefeltmarginalisedintheassessmentprocess. ChildsProfile/story Thechildsprofilemayincludebackgroundfactorspertinenttotheirongoingwellbeingand development.Itwouldberelevanttooutlineanyhealthconditionsthatimpactonthechild. With regards to the childs profile/story it is essential that the childs narrative or understandingoftheirsituationandlifeisarticulatedinthissection. In the context of children suffering abuse, in this section the childs narrative will also be exploredinrelationtotheirexperienceofthis.

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Withyoungerchildrenorprebirthsituationsitisessentialthatthesocialworkerconsiders the childs story/narrative by building a picture drawing on other sources of evidence in regard of their experience based upon presenting issues in the case. This will rely on the socialworkerputtingthemselvesintheshoesofthechild. FamilyTree The social worker in conjunction with the key family members (importantly mother and father)willundertakeanexercisetodrawandunderstandthefamilytree(geneogram).This willneedtobeasdetailedaspossibleandgobackseveralgenerations. Familynetworksthatspanseveralhouseholdswillneedtobearticulatedwithinthewider familytree. Personalandprofessionalrelationships(ecomap) It is essential as part of the gaining of understanding that an eco map is completed in conjunctionwiththechildandfamily.Theecomapisparticularlyimportanttounderstand thefamilysystemandhowitrelatestotheirinternalandexternalworld.Theecomapwill describeandarticulatethefamilysconnectivitywiththeworld.Thiswillhighlightareasof support and isolation. Further, relationships of stress and strain are illuminated together withareasofstrengthandsupport.Thisiscrucialtoinformingthesocialworkplan. Familyhistoryandunderstandingoffamilyrelationships Withregardstofamilyhistoryandunderstandingfamilialrelationships,thissectionincludes the narrative of each birth parent explored both independently and together where possible. Thesocialworkerisexpectedtobecuriouswiththefamilyaroundkeyevents/milestonesin the parents lives and events of significance for them. This will consider how the parents met,theirattitudestohavingchildren,familylifeetc. It is particularly important that the perspective and engagement with the male carer/fatherispursuedandundertaken. Thisprocessshouldconsiderahistoricalunderstandingthroughtothepresentday.Family networks/systems are complex and can involve several households. In this section, an explanation will be given of the familys particular dynamics e.g. who lives where/who is significantetc. Timeline/significantevents In this section, the social worker will document pertinent components of the family chronology that will inform an understanding/relevant to the nature of the referral. It is importantthatonlypertinentinformationisincludedhere.

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Professionalbackgroundandinvolvement In this section, it is expected that the social worker documents previous social care and otherprofessionalinvolvementwiththefamily.Thesocialworkerwilloutlinetheoutcomes inrelationtothisinvolvement. Inbringingthissectiontogether,thechildsstoryiscentral,inpartnershipwiththefamily narrativethisisexploredandcrossreferencedagainsttheprofessionalchronologyand explorationofpreviousCSCandprofessionalinvolvement.Analysisunfoldsandisongoing. SectionTwo Sphereofunderstandingthechildandfamiliescurrentsituation Thisisthemostcrucialsectionthesocialworkerexploresthefamilyscurrentsituationin thecontextoftheirfamilyhistory. Theissuesforexploration/understandinginthesphereofunderstandingareconsideredin thesocialworkersinitialplanningonthecase. Inthissectionthesocialworkerwillunpack/deconstructthereasonforthereferralaspart oftheprocessofunderstanding.Whatthefamilyunderstandtobetheworry/sisexplored. The social worker will use this section to address the current concerns, develop a deeper understandingandlooktothefutureintermsofsupportoremergingneedsorrisks. Supportandinterventionwillneedtobeconsideredandaddressedatthesametimeasthe deepeningunderstandingisdeveloped. Insummary,thesocialworkerisexpectedtoexplorethefollowing: Addressthecurrentreasonsforinvolvementincontextofthehistory BeclearonwhatthefamilyunderstandstobetheworryheldbyCSC Explorationofperspectivesfamily,professionalsandsocialworker Process of deepening understanding/ effecting and affecting change and support required SectionThree FuturePlanning/involvement Childprotectionrisks It is essential that in this section risks are outlined and articulated. It will be important to highlight risks that have a significant impact on the child life chances and will impair, if unaddressedthechildsfuturelifechances. WithregardstoChildProtectionRiskandFamilyResiliencefactors,thefollowingissuesneed tobeconsidered:

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Familyresilienceandprotectivefactors It is essential that in this section key family resilience and protective factors are documented. The resilience and protective factors will be identified through working with the family in relationtothefamilytree,theirstory,andtheecomapwork. It is important to highlight here components in the familys and childs world that could strengthentheirresilienceandcapacitytocopeinthefaceofadversepressure;furtherkey tothisisaskingwhatcanormightmitigateareasofconcern/worry. Analysis The social worker needs to marshal the work thus far, and set out how the information gathered in their work with the family comes together to inform an understanding of the familyscurrentsituationandtheimplicationsofthisforthechild/children/youngperson(s) futurewelfare.Theuseofinternalandexternalevidenceisimportanthere. A formulated view about risk and protective factors should be outlined including any evidencethatthechildissufferingorlikelytosuffersignificantharm.Anexplanationofhow thesejudgmentshavebeenreachedshouldalsobeincluded. Thisprocessofanalysingtheinformationavailableshouldresultinaclearunderstandingof thechildandfamilyssituation. Inmarshallingthework,theremaybedifferentperspectivestobeexplored,recordedand takenintoaccount.Thesedifferencesareimportantwhendevelopinganunderstandingof thechildsneedswithinthefamilycontextandtokeepthefocusontheneedsofthechild, andanyindicationsofdisguisedcompliance. Inthework,bothstrengthsanddifficultiesshouldbeidentified.Thustheanalysisofachild andfamilysituationisacomplexactivitydrawingonknowledgefromresearchandpractice combinedwithanunderstandingofthechildsneedswithinhisorherfamily. The social worker needs to be able to articulate their theoretical body of knowledge that informs their social work. Their manager must be clear on what body of theoretical social work is being drawn on as they will guide and supportively and critically challenge the analyticdeterminationofriskandneed.

What are you worried about regarding this family (past harm, future danger, likelihood,severityandsignificance)? What'sworkingwell(existing/safety)? Whatisthechild/adultworriedabout? What level of understanding and meaningful cooperation have you had in the assessment? What's your summary of risk and protection factors and potential capacity to change? Doesyourassessmentevidenceyourconcernandproposedinterventionplan?

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Inaddressinganalysis,itiscrucialthatthesocialworkerhasadeepunderstandingofthe concept of analysis and how this will be shared with family members. Being able to articulate their practice is ethical and a value principle embedded in the practice framework. SocialWorkInterventionPlan ShouldfutureCSCinvolvementberequired,apurposefulplanwillbedevisedinpartnership withthefamily. Socialworkplansareakeyvehiclethroughwhichfamiliesandchildrenunderstandwhatwe areworriedabout,andwhatneedstobechangeinorderforthestatutoryservicesnottobe involved; i.e. that the worry has been managed / mitigated sufficiently to ensure that the childisnolongerinharmsway.Thepracticeprincipleisthatasocialworkplaniswrittenfor everychild. Socialworkplansshould: Clearlyandthroughfamilyfriendlylanguagearticulatewhatneedstochangeforthe familyAsk:whatissafeenoughforthecasetobeclosed? Plansmustincorporatefamilystrengthsandresourcesasmethodofharmmitigation Encouragethingsthefamilyarealreadydoingtowardasaferfamilylife Includethefamilysideasforsafety Drawontheirfamilygoalsofwhattheywanttoachieve Plansmustdrawonthekeypeoplewhowilltakeactionifneeded(extendedfamily andfriends) Plansmustbeupdatedinlightoffamilyprogresstowardswhathasbeenidentified asneedingtochange Beengagedwithinsupervisionbetweensocialworkerandtheirmanager

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