munro the munro review of child protection interim report the child's journey
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The Munro Reviewof Child Protection
Interim Report:The Childs Journey
Professor Eileen Munro
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Itsallaboutrelationships.Wearetalkingaboutdealingwithpeoplewithproblems,
withpainfulstuff.Youhavetoknowsomeone,trustthem.Theymustbereliableand
bethereforyouifyouaregoingtobeabletotalkaboutthethingsyoudontwant
to.Thethingsthatscareyou. Parent
FamilyPerspectives
on
safeguarding
and
relationships
with
childrens
service
TheChildrensCommissionerforEngland,June2010
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Contents
Acknowledgements
Preface
ExecutiveSummary
ChapterOne: Introduction
ChapterTwo:
Getting
help
early
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
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ChapterFive: Sharedlearningandaccountability
Introduction
Complexorganisations
Signposting
Leadership
Accountability
Managingperformance
Inspection
Sectorbasedapproachestoimprovement
Multiagencytrainingandlearning
Methodsoflearningfrompracticethroughcasereviews
SeriousCaseReviews(SCRs)
Developingotherkindsofreviewsandlearningactivity
Childdeathreviewprocesses
RevisingWorking
Together
to
Safeguard
Children
(2010)
FamilyJusticeReview
Conclusion
ChapterSix: Conclusion
AnnexA: AssociationofChiefPoliceOfficersStatementofRisk
Principles
Annex
B:
Tower
Hamlets
Draft
Record
For
Understanding
Families
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AcknowledgementsIamgratefultoalltheindividualsandorganisations,fromacrossthewholespectrumof
childrensservices,
who
have
assisted
me
in
this
review
of
the
child
protection
system.
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.
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o PerformanceandInspection:
MarionDavis,EleanorSchooling,RobHutchinson,PaulCurran,Anne
Plummer,JohnGoldup,MikePinnock,KarenMarcroft,ProfessorJune
Thoburn.
theleads
of
the
other
independent
reviews
commissioned
by
the
Government
with
whomIhavebeenworkingclosely:
o GrahamAllenMP;
o RtHonFrankFieldMP;
o DavidNorgrove;and
o DameClareTickell.
thechildrenandyoungpeoplewhohavemetmetotalkabouttheirexperiences
organisationsthatmyteamvisitedtolookatexamplesofinnovation,
transformationandgoodpracticeinactionaspartofthe programmeoffieldwork:
o Bathand
North
East
Somerset
Council;
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).
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Preface
Thisisthesecondreportofthereviewofchildprotection
inEnglandcommissionedinJune2010bytheSecretaryof
StateforEducation,theRightHonourableMichaelGove
MP.Itsthemeisthechildsjourney. Tooofteninrecent
history,thechildprotectionsystemhas,inthepursuitof
imposedmanagerialtargetsandregulations,forgotten
thatitsraisondtreisthewelfareandprotectionofthe
child.Thisphaseofthereviewlookedathowthesystem
couldbereformedtokeepafocusonthechildsjourney
thejourneyfromneedinghelptoreceivingit. Thiscoversanumberofareas,
includingworkwithchildrenandfamilieswhohavenotyetmetthethresholdforchildprotection.
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
takingplace
at
atime
of
financial
constraint,
and
it
is
within
this
context
that
my
recommendationswillbemade. However,thisreviewofchildprotectionhasbeen
fortunateinbeingthefirstnottohavebeeninitiatedinresponsetoaparticular
tragedyandmyfinalreportinAprilwillnotseekaseriesofsuperficialquickfixesin
asystemascomplexasthechildprotectionsystem,therearenoquickfixestobe
had. Thereare,however,barrierstogoodpracticewhichcanberemovedand
incentivestobetterpracticewhichcanbeputinplace.Ihopethattheresultwillbe
arecalibrationofthewholesystemaroundtheimmediateneedsoftheindividual
childrenandfamiliesthatitseekstoserve.
ProfessorEileen
Munro
LondonSchoolofEconomicsandPoliticalScience February2011
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Executivesummary
1. TheMunroReviewofchildprotectionispartofanationaldrivetoimprovethe
quality
of
child
protection
services.
The
aim
of
this
report
is
to
set
out
for
discussion
thecharacteristicsofaneffectivechildprotectionsystem,andthereformsthat
mighthelptocreatesuchasystem. ThisreportiscalledTheChildsJourney,
referringtothechildsjourneyfromneedingtoreceivingeffectiveprotectionfrom
abuseandneglect.
2. Thereviewsfirstreportprovidedananalysisoftheunintendedconsequencesof
previousreformsthathadariseninthechildprotectionsystem.Itconcludedthat
professionalsare,inparticular,constrainedfromkeepingafocusonthechildbythe
demandsandrigiditycreatedbyinspectionandregulation. Manyoftheareas
identifiedforreformatthisstageofthereviewrelate,therefore,tothesepartsof
thesystem.
3. Toencouragechange,thereviewhasbeenworkinginpartnershipwithfive
authoritieswhohaverequestedgreaterflexibilitywhenassessingtheneedsof
childrenandyoungpeople,withtheaimofdeliveringimprovedoutcomesandmore
focusedinterventions.TheSecretaryofStateforEducationisconsideringusinghis
powerstoenablethemtomodeltheresponsibleinnovationthisreviewwantsto
encourage. Theselocalauthoritieswillbegrantedtemporarysuspensionfrom
certainrequirementsinstatutoryguidanceforasixmonthperiod,subjecttotheir
agreementwithMinisterstotheconditionsofthetrial.
4. Thereviewendorsesthecrucialrolethatinspectioncanplayinimprovingservices
forchildren,andwillbeworkingwithOfstedtodevelopaninspectionprocessthat
driveschildcentredpractice,focusesontheeffectivenessofhelpprovidedand
assessesthequalityoflearningacrosslocalorganisations,ratherthancompliance
withprocess. Theconsensusviewinfeedbacktothereviewhasbeenthat
announcedinspectioncarriesaconsiderableamountofbureaucraticburden. The
reviewisrecommendingthatannouncedinspectionsshouldendaspartof
forthcomingrevisionstotheinspectionframework.Instead,unannounced
inspectionsshouldbegivenabroaderremitacrossthecontributionofallchildrens
servicesto
the
protection
of
children.
5. SeriousCaseReviews(SCRs)havebeencriticisedforfailingtoidentifyorexplainthe
factorsthathavecontributedtopoorpractice. Thereviewisthereforeconsidering
adoptingthesystemsapproachusedinthehealthsector,whichexploresthese
factorsandthereforeoffersthepotentialfordeeperlessonsandimprovedlearning.
ThereviewhasalsoreceivedevidencethatthesystemofexternalevaluationofSCRs
hasdistortedtheprioritiesinconductingthesereviews,addingtobureaucracy,and
inhibitinglearning. AlongsidetheGovernmentspolicythatSCRoverviewreportsare
published,thereviewisrecommendingthatOfstedevaluationsofSCRsshouldend
indue
course.
Instead,
the
quality
of
learning
more
generally
should
be
given
greater
coveragewithintheoverallinspectionprocess.
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6. WorkingTogethertoSafeguardChildrenisthecoreguidanceformultiagency
working. Thedocumentisnow55timeslongerthanitwasin19741. Oneofthe
reasonsforthisgrowthhasbeentheinclusionofprofessionaladvicealongside
statutoryguidance. Thereviewisworkingwithagroupofrepresentativesfromthe
relevantprofessions
to
consider
how
statutory
guidance
could
be
separated
out
fromprofessionaladvice,withtheprofessionstakingresponsibilityforthelatter. In
thenextreportthereviewwillmakerecommendationsonhowthiswouldallowfor
statutoryguidancetobecomeashortermanualinwhichthecoreprinciplesand
rulesareclearertoallprofessionals.
7. Seniorleadersfromlocalagenciesworktogether,throughtheLocalSafeguarding
ChildrenBoard(LSCB),toprovidelocalleadershipandclarityaboutworkingtogether
tohelpkeepchildrenandyoungpeoplesafe. LSCBsareuniquelyplacedtotakea
holisticapproachtochildprotection.Thereviewismindedtostrengthentheroleof
LSCBsin
monitoring
the
impact
of
practice,
training
and
learning
on
the
childs
journey,aswellasidentifyingandaddressingemergingproblemsinthesystem.
8. Withtheextentofcurrentpublicservicereform,theroleofleadershipandlinesof
accountabilityinchildprotectionservicesneedtobeclear. Thereviewagreeswith
LordLamingsconclusionontheneedforastronglocalspineofaccountableleaders,
withresponsibilitylocatedinthelocalauthority,asreflectedinthecurrentstatutory
framework. Inparticularthereviewconsidersitimportantthatlocalauthorities
ensurethattheroleoftheDirectorofChildrensServicescontinuesasthekeypoint
ofprofessionalaccountabilityforchildprotectionserviceswithinthelocalauthority
andthat
this
is
not
diluted
or
weakened.
9. Localauthoritiesandtheirpartnersneedperformancedatatoknowhowthesystem
isfunctioning. TheGovernmenthasannouncedthattheNationalIndicatorSetof
performancemeasureswillbereplacedwithasinglecomprehensivelistofdata
requiredcentrally. Thereviewisconsideringaminimumdatasetforchildprotection
madeupofatwincoreofnationallycollecteddataandrecommendedstandardised
localdata. Suchdatacanhelpinformthedevelopmentandevaluationofpolicyby
centralGovernmentanddriveimprovementandlearningatalocallevel. Itis
importantthatdataallowsthechildsjourneythroughthesystemtobemappedand
thatsuch
data
informs
discussions
about
local
practice,
rather
than
being
used
as
absoluteindicatorsofgoodorbadperformance.
10. Earlyidentificationandprovisionofhelpisinthechildsbestinterestsandmulti
agencyserviceswhichdeliversupportforfamiliesarevitalinpromotingchildrens
wellbeing. Thereviewendorseseffortstoimprovefamilysupportservicesinthe
communitysuchasSureStartChildrensCentresandthehealthvisitorservice,and
emphasisgiventothisissuebyFrankField(reportedDec2010),GrahamAllen
(reportedJan2011)andClareTickell(Spring2011)intheirrespectivereviews.
1Parton,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,an
assessment
is
made,
using
aformat
common
to
all
local
agencies,
that
canbesharedasappropriatewithotherprofessionals. Itisimportanttominimise
dependencyandempowerfamilies,givingthemownershipoftheirpersonal
assessment.
12. Maltreatmentisnotalwaysbeingsafelyidentifiedandrespondedtoappropriately
becausesocialworkexpertisemaynotalwaysbereadilyavailabletoother
professionals. Thiscontributestoahighlevelofreferralstochildrenssocialcare
thataresubsequentlyassessedasinappropriate. Initsfinalphase,thereviewwill
considersolutionsdevelopedinsomelocalareas,wheremultiagencyteams,that
includesocial
workers,
are
located
in
the
community
alongside
universal
services.
Theseteamsenablechildrenandyoungpeoplewhoareinneedofprotectionfrom
maltreatmenttobemoreaccuratelyidentified.
13. Thereviewisconsideringwhether,whenachildisreferredtochildrenssocialcare,
anyexistingassessmentiscontinuedbysocialworkers,ratherthanthecurrent
systemwhichstartsanewbureaucraticprocessofinitialandcoreassessments.
Currentpracticeisdominatedbyprescribedtimescales,butthereshouldbea
strongerawarenessofbalancingthetimelinesswiththequalityofassessment,so
thatthespecificneedsofanychildcanbewellassessed. Timelinessmattersbutso
doesquality,
and
local
arrangements
should
monitor
both.
The
review
is
working
withtheFamilyJusticeReviewtoexplorehowlocalauthoritiescancontributeto
reducingunnecessarydelaysinthechildsjourneythroughthecourtsandcare
proceedings.
14. Managersinsocialworkplayacrucialpartincreatingtheworkconditionsthat
facilitategoodpractice. Thecurrentmanagementstyleputstoomuchemphasison
thebureaucraticaspectsofthework. Radicalreformisneededtogivedueweightto
theimportanceofthecognitiveandemotionalrequirementsofthework,theneed
forcontinuingprofessionaldevelopment,andforaccesstoresearchinordertohelp
workersperform
at
ahigh
level.
The
scale
of
rules
and
procedures
may
help
achieve
aminimumstandardofpractice,butinhibitsthedevelopmentofprofessional
expertiseandalienatestheworkforce,thuscontributingtotheseriousproblemsof
recruitmentandretention. Thereviewisconsideringhowusercentreddesignof
assessmentanddecisionmakingtoolscanprovidebetteraidstoprofessional
reasoning. Thereviewisworkinginparticularwithpractitionersonhowthedesign
ofIntegratedChildrensSystem(ICS)softwarecanbemademoreuserfriendlyand
efficient.
15. Goodsocialworkpracticerequiresformingarelationshipwiththechildandfamily
and
using
professional
reasoning
to
judge
how
best
to
work
with
parents.
The
natureofthiscloseengagementmeansthatsupervision,whichprovidesthespace
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forcriticalreflection,isessentialforreducingtheriskoferrorsinprofessionals
reasoning. Thereisagrowingbodyofrelevantresearchtosupportprofessionals
reasoning. Itisimportantthatsocialworkersmakegooduseofthistomakemore
accurateassessmentsandtodifferentiatethoseaspectsofpoorparentingthattend
tobecorrelatedwithadverseoutcomesforthechildfromthelessdamagingones.
Socialworkers
need
to
make
best
use
of
evidence
on
how
to
help
families
change.
Thisshouldincludebothevidenceaboutthenatureofeffectiveworking
relationships,andofmethodstousewithintheserelationshipstopromotechange.
16. TheSocialWorkReformBoard(SWRB)hasdevelopedacapabilitiesframework
whichoutlinesthegenericskillsandknowledgeneededbyasocialworkerat
differentstagesintheircareer. Thereviewisbuildingonthisanddraftingthe
specialistcapabilitiesneededinchildandfamilysocialwork. TheSWRBhas
recommendedthatthecareerstructureshouldbealteredtogivesocialworkersa
longtermprofessionalcareerwithoutbecomingamanager. Thereviewis
consideringhow
this
could
be
developed
in
child
and
family
social
work,
to
enable
thedevelopmentofexpertisethatshouldbeavailabletosupportthefrontline
practitioner.
17. Manyprofessionals,inthepast,havereflectedontheclimateoffear,blameand
mistrustthatseemstobeendemicwithinthechildprotectionsystem2. Thereis
considerableevidencethatthechildprotectionsystemandsocialworkersin
particulararestillportrayedverynegativelyinthemedia. Thisunderminespublic
confidenceintheprofessionandputschildrenatgreaterrisk. Suchreportingalso
hasunintendedconsequencesforthewaythesystemfunctions,forexample,by
alteringreferral
patterns,
creating
spikes
in
demand,
and
increasing
thresholds.
The
review,workingwiththeCollegeofSocialWork,newlyestablishedonthe
recommendationoftheSocialWorkTaskForce,isconsideringhowtohelpthepublic
gainabetterunderstandingofthecomplexity,uncertaintyandemotionalchallenge
inherentinchildprotection. Thisincludesimprovingtheresponseofthesocialwork
professiontopublicdebatesabouttheirwork,especiallyinacrisis,sothatthereisa
cleareraccountofprofessionalpractice.
18. Agoodchildprotectionsystemshouldbeconcernedwiththechildsjourneythrough
thesystemfromneedingtoreceivinghelp,keepingaclearfocusonchildrensbest
intereststhroughout.
This
includes
developing
the
expertise
and
the
organisational
environmentthathelpsprofessionalsworkingwithchildren,youngpeopleand
familiestoprovidemoreeffectivehelp. Thereviewisconsideringwhether,inlight
ofwiderreformofpublicservices,thereisaneedforapanelcomposedofthe
relevantprofessionswithinthechildprotectionsystem,toadviseGovernmentand
theprofessionsonhowthedifferentpartsofthechildprotectionsystemare
interactingandwhetherproblemsareemerging.
19. Thisreviewistakingplaceatatimeofmajorreforminalloftherelevantpublic
services,whereseriousfinancialconstraintsarebeingappliedandwithmajor
2Ayre, 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
1.1 TheMunroReviewofChildProtection,PartOne:ASystemsAnalysis3setoutthe
currentproblems
in
the
child
protection
system
and
offered
an
analysis
of
why
these
problemshadarisen. Itconcludedthatanimbalancehasdevelopedbetweenthe
demandsofthemanagementandinspectionprocessesandprofessionalsneedfora
workenvironmentandtherightcapabilitiestohelpthemexerciseprofessional
judgment,provideeffectivehelp,andkeepaclearfocusonthebestinterestsofthe
child. Theaimofthisinterimreportistosetthecharacteristicsofaneffectivechild
protectionsystemandtooutlinethereformsthatmighthelpthecurrentsystemget
closertotheideal,seekingfeedbackonthisbeforemakingdetailed
recommendationstoGovernmentinthefinalreportattheendofApril.
1.2
Providingeffective
help
to
children
who
are
at
risk
of
abuse
or
neglect
has
both
immediateandlongtermbenefits. Childmaltreatmenthasbeenassociatedwiththe
followinglongtermimpacts:
Figure1.1PreVail,ResearchBrief: InterventionstoPreventChildMaltreatment
(March2010)4
1.3 TheUnitedNationsConventionontheRightsoftheChild(UNCRC)providesachild
centredframework
that
spells
out
the
basic
human
rights
that
children
everywhere
have:therighttosurvival;todeveloptothefullest;toprotectionfromharmful
influences,abuseandexploitation;andtoparticipatefullyinfamily,culturaland
sociallife. ThefourcoreprinciplesoftheConventionarenondiscrimination;
devotiontothebestinterestsofthechild;therighttolife,survivaland
development;andrespectfortheviewsofthechild5. Thevisionofchildrenimplicit
intheUNCRCandintheChildrenAct1989isthatchildrenareneithertheproperty
3Munro,E.(2010).TheMunroReviewofChildProtectionPartOne:ASystemsAnalysis,retrieved
fromhttp://www.education.gov.uk/munroreview/downloads/TheMunroReviewofChildProtection
Part%20one.pdf4http://prevail.fims.uwo.ca/docs/CM%20Research%20Brief%20Mar10.pdf
5http://www2.ohchr.org/english/law/crc.htm
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oftheirparentsnorhelplessobjectsofcharity. Theyareindividuals,membersofa
familyandacommunity,withrightsandresponsibilitiesappropriatetotheirstageof
development.
1.4 Thechildprotectionsystemcouldbetakentoreferspecificallytothereactive
serviceof
identifying
incidences
of
maltreatment
and
preventing
their
recurrence.
However,astheUNCRCmakesclear,thechildsrighttoprotectionfrom
maltreatmentplacesadutyontheStatenotjusttoreacttoincidentsof
maltreatmentbuttoprovidesupporttofamiliestoreducetheincidence. Article19
oftheUNCRC:
1.StatesPartiesshalltakeallappropriatelegislative,administrative,socialand
educationalmeasurestoprotectthechildfromallformsofphysicalormental
violence,injuryorabuse,neglectornegligenttreatment,maltreatmentor
exploitation,includingsexualabuse,whileinthecareofparent(s),legal
guardian(s)or
any
other
person
who
has
the
care
of
the
child.
2.Suchprotectivemeasuresshould,asappropriate,includeeffective
proceduresfortheestablishmentofsocialprogrammestoprovidenecessary
supportforthechildandforthosewhohavethecareofthechild,aswellasfor
otherformsofpreventionandforidentification,reporting,referral,
investigation,treatmentandfollowupofinstancesofchildmaltreatment
describedheretofore,and,asappropriate,forjudicialinvolvement.
1.5 Childcentred: ThisreportisentitledTheChildsJourney,meaningthechilds
journeyfrom
needing
to
receiving
effective
help
for
problems
arising
from
family
andsocialcircumstances. Evidencepresentedtothereviewshowsthatthesystem
doesnotcurrentlystaychildcentred. Whilemanyprofessionalsmakestrenuous
effortstokeepafocusonthechildandmanychildrenpraisethehelptheyhave
receivedthereareaspectsofthecurrentsystemthatpushpractitionersinto
prioritisingotheraspectsoftheirwork. Assetoutinthisreviewsfirstreport6:
Itmayseemselfevidentthatchildrenandyoungpeoplearethefocusofchild
protectionservicesbutmanyofthecriticismsofcurrentpracticesuggest
otherwise. Inasystemthathasbecomeoverbureaucratisedandfocusedon
meetingtargetswhichreducethecapacityofsocialworkerstospendtimewith
childrenand
young
people
and
develop
meaningful
relationships
with
them,
thereisariskthattheywillbedeprivedofthecareandrespectthatthey
deserve. Thechildrenandyoungpeoplewhohavecontributedsofartothe
reviewconfirmthattheydonotfeelasthoughtheyarecentrallyimportantand
heldinmindbytheirsocialworker:
IwasneveraskedabouthowIfeltorwhatIwantedtohappen.Askingme10
minutesbeforethemeetingisnotthesame
Youngpersonspeakingtothereview
6
Munro,
E.
(2010).
The
Munro
Review
of
Child
Protection
Part
One:
A
Systems
Analysis,
retrieved
fromhttp://www.education.gov.uk/munroreview/downloads/TheMunroReviewofChildProtection
Part%20one.pdf
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1.6 AnchoringthereviewintheconceptofthechildsjourneyandtheUNCRChelpsto
keepaclearfocusonwhetherthereviewsreformsarelikelytohaveabeneficial
impactonthesafetyandwellbeingofchildren. Itprovidesastructurewhen
thinkingaboutthedesignofaneffectivechildprotectionsystem. Whatdochildren
needfrom
achild
protection
system?
What
do
they
need
frontline
practitioners
to
beabletodo? Howshouldpractitionersbemanagedinordertoprovidethis? How
shouldservicesbeinspectedtocheckthatthisisbeingachieved? Anysuggested
reformshouldhaveaclearlinktotheimpactonthewellbeingandsafetyof
children.
1.7 Thereisalsoanimportantgroupofchildrenwhoarethesubjectofachildprotection
enquiryandwheremaltreatmentisnotfound. Forthesefamilies,theexperience
rangesfromunpleasanttohighlytraumatic,sometimesleavingthemwithafearof
askingforhelpinthefuture. Inthefirstreport,itwasnotedthatthemoreany
systemtries
to
avoid
missing
acase
of
maltreatment
then
the
more
non
abusive
familieswillbedrawnintothenetofchildprotectioninquiries. Itisimportantto
rememberthatthesearchforaccuracycomeswithahumancostthatisbornebya
childandparentsandsothesystemneedstopayattentiontotheimpactoftheir
serviceinvolvementonchildrenwho,itislaterconcluded,arenotatriskof
significantharm.
1.8 Earlyhelp: Thesequenceofthechaptersinthisreportfollowsthechildsjourney.
Fromachildspointofview,theidealiswherefamily,friends,community,and
universalservicesprovideallthatisrequired,andthisistheexperienceformost
childrenin
England.
The
second
best
is
that
any
emerging
problems
are
identified
quicklyandaddressed. Chaptertwodiscussestheimportanceofprimaryand
secondarylevelsofpreventiveservices,servicesthatsupportfamiliessothat
problemsdonotariseoraredealtwithspeedilywhilestillatalowlevel. Supporting
familiesisamultiagency,multiprofessionalresponsibility. Allhaveaparttoplayin
identifyingchildrenwhoseneedsarenotbeingadequatelymet,sometimesbecause
ofparentalabuseorneglect.
1.9 Therearethreeotherreviews,commissionedtoconsideraspectsofearlyprovision
ofhelpforchildren,whicharerelevanthere. Theirrecommendationswillbetaken
intoaccount
in
this
review:
theIndependentReviewonPovertyandLifeChancesledbyFrankFieldMP
reportedinDecember20107recommendingactionsrequiredbygovernment
andotherinstitutionstoreducepovertyandenhancelifechancesforthe
mostdisadvantaged. Thefinalreportsetoutanewapproachtomeetingthe
Governmentstargetforabolishingchildpoverty,inparticularforthe
inclusionofnonfinancialelements;
7Field,F.(2010),FoundationYears:preventingpoorchildrenbecomingpooradults(availableonlineat
http://povertyreview.independent.gov.uk/)
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theindependentcommissionintoearlyinterventionledbyGrahamAllenMP
presentedtheirfirstreportinJanuary2011. Thereportidentified19
programmesthathaveaproveneffectivenessinhelpingchildrenandyoung
peopletofulfilltheirpotentialandhelpbreakintergenerationaltransfersof
disadvantageandunderachievement8;and
areview
of
the
Early
Years
Foundation
Stage
(EYFS)
is
being
undertaken
by
DameClareTickellwhoiscarryingoutareviewoftheEYFSsothatitisless
bureaucraticandmorefocusedonyoungchildrenslearningand
development9.
Forthisreview,akeyconcernistheproblemofidentifyingthosechildren,receiving
earlyinterventionservices,whoaresuffering,orarelikelytosuffer,significantharm
andneedadifferentlevelofresponse.
1.10 Childandfamilysocialwork: Chapterthreebeginsbyconsideringwhatexpertise
childrenneed
social
workers
to
have.
It
builds
on
the
work
of
the
Social
Work
Task
ForceandtheSocialWorkReformBoardtooutlinetheskills,knowledgeandvalues
needed.
1.11 Whenlookingatwaystoreducebureaucraticdemandsonsocialworkers
considerationneedstobegiventowhythesedemandswereintroducedand
whetherthosereasonsstillholdtrue. Thereseemtohavebeentwomaindriving
forcesbehindtheproliferationofprescriptionanddocumentation: improvingsocial
workpracticeandincreasingtransparencyandaccountability. Bothissuescontinue
tomatter,soanyreformsneedtotrytoachievethesamegoalsbutbydifferent
means.The
former
issue
is
covered
in
chapters
three
and
four
while
the
latter
topic
oftransparencyandaccountabilityisdealtwithinchaptersfourandfivewhen
discussingmanagerialoversightandinspection.
1.12 Managingfrontlinesocialwork: Thefirstreportconcludedthatthemanagementof
childrenssocialcarehadevolvedtoofarintoatopdown,compliancedriven
organisation. Thisstifledcreativityanddistortedpriorities,withmoreattention
giventothecompletionofbureaucratictaskstospecifiedtimescalesasthemeasure
ofsuccess,thantheappraisalofthequalityofhelpreceivedbychildrenandtheir
families. Chapterfourconsidershowchildrenssocialcareorganisationsneedto
movetowards
being
adaptive,
learning
organisations
that
keep
aclear
focus
on
creatingtheworkenvironmentthathelpsfrontlinesocialworkershavetheskills,
timeandresourcestovisitfamilies,engagewiththem,developagood
understandingoftheirproblemsandprovideeffectivehelp.
1.13 Accountabilities: Chapterfivesmultiagency,multiprofessionalfocusstartsby
8Allen,G.(2011),EarlyIntervention:thenextsteps(availableonlineat
http://media.education.gov.uk/assets/files/pdf/g/graham%20allens%20review%20of%20early%20int
ervention.pdf)9
Launch
notice
available
online
at
http://www.education.gov.uk/inthenews/inthenews/a0061485/reviewofearlyyearsfoundation
stage
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discussingtheroleofLocalSafeguardingChildrenBoards(LSCBs)inmonitoringhow
welllocalservicesaresafeguardingchildren. Italsoreemphasisestheimportanceof
localleadersintheregularenquiryoftheimpactoftheirhelplocallyonchildrenand
youngpeopleandbeginstoconsiderhowinspectioncandrivealearningculture.
LSCBsarerequiredtoconductaSeriousCaseReviewwhenachilddiesorisseriously
injuredand
abuse
or
neglect
is
thought
to
be
acontributory
factor.
The
chapter
exploreswhetherthesystemsapproachusedinthehealthsectoroffersabetter
modelforlearning.
1.14 Assessmentandtimescales: Inthespiritoffosteringalearningandadaptiveculture
withinlocalchildprotectionsystems,thereviewhasengagedwithanumberoflocal
authorities,inordertounderstandthechallengestheyface. Thereviewteamhas
beenworkinginpartnershipwithfiveauthoritieswhohaverequestedgreater
flexibilitywhenassessingtheneedsofchildrenandyoungpeople,withtheaimof
deliveringimprovedoutcomesandmorefocusedinterventions. Theselocal
authoritieswill
be
granted
temporary
suspension
from
certain
requirements
in
statutoryguidanceforasixmonthperiod,subjecttotheiragreementwithMinisters
totheconditionsofthetrial. Thetrialswillbeginshortlyandrununtiltheendof
July. Theearlyresultswillinformthinkingforthefinalreportofthereview(see
chapterfourfordetails).
1.15 Thehypothesisisthat,whilsttimescalesandfixedstagesofassessmentprovide
somecontrolofthechildprotectionsystem(forexamplebypreventingdriftand
controllingdemand),theycandosoattheexpenseofthoughtfulsocialwork
practice. Itispossiblethatadifferentapproachtolocalmanagementandleadership
couldmitigate
these
negative
tendencies.
It
should
be
possible
to
provide
thoughtfulassessmentandtimelydecisionmakingwithouttheneedforfalse
assessmentdistinctionsandtimescaleswhichseektooverstandardisethemany
variedandcomplexneedsofvulnerablechildren.
1.16 Theissueoftimescalesisoneelementofabroaderthemethatpermeatesthe
review:theproblemoffindingabalancebetweenprescriptiverulesandprofessional
judgmentbasedonexpertise. Targetsandperformanceindicatorsarecriticisedas
implicitlycreatingarule,i.e.meetingthatindicatorisautomaticallyanindicationof
goodpractice,regardlessofwhetheritisinthebestinterestsofthechild. In
reality,because
of
the
diversity
of
childrens
needs
and
circumstances,
the
data
needstobeinterrogatedtoseewhatpracticehasproducedthisresultandwhether
itwasbeneficialforthechildornot. Inasimilarway,theexpansionofprocedures
andprescriptiveguidanceisfaultedforoverstandardisingpracticeandundervaluing
theskillsrequiredtoapplyprinciplesindiversecircumstances.
1.17 Rulesandjudgment: Whilstsomerulesandprescriptionwillalwaysbenecessary
notleasttoenablepeoplefromdifferentagenciestocoordinatetheirworkthey
havecometobeseenasawayofmakingquickimprovementsinapoorservice,
withoutneedinglengthytrainingtoexplaintothemultiagencyworkforcewhythey
matter.
In
the
long
term,
improvement
in
the
quality
of
the
service
provided
to
children,youngpeopleandfamilies(thequalityofthejourney)restsonhavinga
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welltrained,wellsupportedworkforcethatunderstandstheunderlyingprinciplesof
childprotectionandhasthespacetoassesshowbesttoapplythem.
Theprinciplesofchildprotection
1.18 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,with spaceforprofessionaljudgmentto
meetthatvarietyofneed;
thecomplexityoftheworldmeansthatuncertaintyandriskarefeaturesof
childprotectionworkandthatriskmanagementcannoteliminateharm,only
reduceitsoccurrence;
alearningandadaptivesystemischaracterisedbyregularquestioningofhow
thesystem(locallyandnationally)isfunctioningandwhetherchildrenare
receivingeffectivehelp;and
goodprofessionalpracticeisdrivenbyknowledgeofthelatesttheoryand
research.
Itisvitaltoo,thatanyprinciplesthatseektosupportchildprotectionaremindfulof
theinherentriskanduncertaintyinprotectingchildrenandyoungpeoplefrom
harm. Inthisarea,thereviewhasbeenparticularlyimpressedbytheriskprinciples
developedbytheAssociationofChiefPoliceOfficers(ACPO),andisconsideringways
inwhichtheycouldbeincorporatedintochildprotectionwork(seeAnnexA).
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Nextsteps
1.19 Thefinalphaseofthereviewwillproposehowthecurrentsystemcanbeadjusted
sothat,overtime,itbetterreflectstheneedsofchildrenandyoungpeople. Asthe
review
develops
detailed
recommendations
to
Government
in
each
of
these
areas
it
willworkverycloselywithstakeholdersandchildprotectionprofessionalsinorder
tothinkclearlyabouttheimplicationsofimplementation,beforemaking
recommendationstoMinistersbytheendofApril.
1.20 Thisisanopportunitynottosettherightsysteminstone,buttobuildanadaptive,
learningsystemwhichcanevolveasneedsandconditionschange. Itisonlyby
seekingwellbalancedflexibilitythatthesystemcanhopetoretainitsfocuson
helpingchildrenandfamilies,ratherthansimplycomingtoserveitsown
bureaucraticends.
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ChapterTwo: Gettinghelpearly
Nochildsfutureshouldbepredeterminedbythedecisionsormistakesofhis
or
her
parents,
and
I
firmly
believe
every
child
should
have
the
chance
to
succeed,regardlessoftheirbackground.Interveningearlierwithtroubled
familiescannotonlypreventchildrenandtheirparentsfallingintoacycleof
deprivation,antisocialbehaviourandpovertybutcansavethousandsifnot
millionsofpoundsinthelongerterm10.
2.1 Theearlier,thebetter: Fromachildoryoungpersonspointofview,theearlier
helpisreceived,thebetter. Researchonchildrensdevelopmentalsoemphasises
theimportanceoftheearlyyearsontheirlongtermoutcomes. Thischapter,
therefore,discussesthecurrentpoliciesofpreventionandearlyintervention,but
hasaspecificfocusonidentifyingthosechildrenwhoaresuffering,orarelikelyto
suffer,significant
harm
as
aresult
of
maltreatment.
It
begins
by
describing
the
levels
ofpreventionthatcanbeofferedtochildrenandfamiliesbeforediscussingthescale
oftheproblem,adiscussionthatrevealshowmuchunmetneedforprotectionthere
is. Themeritsofprimaryandsecondarypreventiveservicesarealsocovered,asis
theproblemofhowtoidentifythechildrenwithinthoseserviceswhoaresuffering
orarelikelytosuffersignificantharm. Evidencesubmittedtothereviewsuggests
thatoneconstructivewayofdealingwiththisproblemiscreatingmultiagency
teamsinthecommunitythathaveanexperiencedsocialworkeramongother
professionalssothatmoreinformedappraisalsofsignsofconcerncanbemade.
2.2 Engagingfamilies:
There
is
atension
in
providing
support
to
parents.
For
most,
the
rightapproachistoofferserviceswithfamiliesmakingavoluntarychoicetoreceive
them. Therearefamilieswhoselevelofparentingraisessomeconcernandthe
relevantservicesmakemorestrenuouseffortstomakethemawareofthehelp
availableandtogaintheircooperation. Therearealsofamilieswhoseparenting
raisesseriousconcern,anditmaybenecessarytotakeamorecoerciveapproach.It
istheproblemofdecidingwhentoescalatethelevelofprofessionalinvolvement
thatisoneofthemainconcernsofthisreview:identifyingthosechildren,receiving
earlyinterventionservices,whoaresuffering,orarelikelytosuffer,significantharm
andneedadifferentlevelofresponseisthedilemmaprofessionalsface. A
complicatingfactor
is
that
parents
who
voluntarily
engage
with
support
services
tendtomakemoreprogresswhileamorecoerciveapproachcandeteriorateintoan
adversarialrelationshipwhichblocksprogress. Therefore,movingupthescaleof
intrusivenesscarriesbothgainsandlossesandsocreatesacomplexdecision.
2.3 Helping: Thereviewusesthetermhelpratherthanthemorecommonlyusedterm
interventionindescribingprofessionalservicesbecausehelpcarriesastronger
connotationofworkingwithfamiliesandsupportingtheiraimsandeffortsto
change. Inthefirstreport,itwasstressedthatsuccessinhumanservicesisthe
resultofthejointeffortsoftheprofessionalandtheserviceuser:allpublicservices
10MinsterofState,SarahTeatherMP, onlaunchingtheGrahamAllenreviewonEarlyIntervention,
http://www.dwp.gov.uk/newsroom/pressreleases/2010/july 2010/dwp09710280710.shtml
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requirethecustomertobeanactiveagentintheproductionofthedesired
outcomes11
. Itisimportant,however,tostressthatusingthetermhelp,doesnot
takeawayfromthefactthatchildprotectionworkrequiresauthoritativeand,at
times,coerciveactiontoprotectchildrenandyoungpeople.
2.4 Currentpolicy:
Evidence
submitted
to
the
review
shows
that
there
is
strong
support
forthecurrentpolicyofbuildingupearlysupportserviceswhichfocusinvestment
ontacklingemergingproblems. Thereisalsoaconsiderablebodyofevidencethat
interveningearlycansavemoneybyavoidingmorecostlyinterventions(see,for
example,theworkofGrahamAllen,mentionedbelow). Manysuchapproaches
alreadyexist,suchashealthvisitingservices(forwhichthereisaplannedexpansion
programme)andSureStartChildrensCentreswhicharecurrentlybeingreformed
withanincreasedfocusonearlyinterventionsupportforthefamiliesingreatest
needandgreaterinvolvementofvoluntaryandcommunityorganisationswitha
trackrecordofsupportingfamilies.
2.5 Supervisedvolunteershavearoletoplayasanaidtotheearlysupportworkforcefor
children,youngpeople,theirfamiliesandcarers,offeringflexiblehelp. Forexample,
throughanetworkofover16,000trainedparentvolunteers,HomeStartsupports
parentswhoarestrugglingtocope. Trainedvolunteerstrytohelpbuildthe
resilienceandemotionalstrengthoffamilies. Almost25%offamiliestheyhelp
referredthemselvestotheservice12
. Inaddition,thereisalongtraditionofchildren
andtheirfamiliesdrawingonsupportfromarangeofsourcesoutsideofthestate,
fromcorefrontlineservicesprovidedbysomeofEnglandslargestcharitiesto
groupsoflocalvolunteersassistingsocialcaretoenhancetheserviceitprovides.
2.6 Thesignificanceofpreventionandearlyprovisionofhelpisreinforcedbythefactthatweknowfarmoreabouthowtopreventtheprimaryoccurrenceof
maltreatmentthanhowtorespondeffectivelyoncemaltreatmenthasoccurred13
.
AstheAllenReviewargues,thisstrengthensthecaseforhavingselectiveprimary
preventionprogrammesofferedtofamiliesinhighriskgroups14
.
2.7 Itisalsoimportantnottoseeallfamiliesasproblematic. Themajorityoffamilies
usesupportfromwithinthefamily,friends,communitiesanduniversalservicesin
raisingchildren. Thebasicsofabigsocietyarealreadyinplace.
2.8 Inusing
research
evidence
about
correlations
between
childhood
factors
and
later
outcomes,itisimportantnottoassumeasimpledeterminismattheindividuallevel.
Researchcanidentifygroupswithinwhichtherewillbeahigherthanaverage
numberofindividualswhohaveproblemslaterbutsomeinthegroupwillnot.
Studiesofsiblingswhohavesufferedmaltreatmentrevealhowvariedtheirlife
11Chapman,J.(2004)SystemFailure;whyGovernmentsMustLearntoThinkDifferently,Demos
12www.homestart.org.uk
13Macmillan,H.etal(2009),Interventionstopreventchildmaltreatmentandassociated
impairment,TheLancet,Volume373,pp25026614
Allen,
G.
(2011),
Early
Intervention:
the
next
steps,
chapter
3
(available
online
at
http://media.education.gov.uk/assets/files/pdf/g/graham%20allens%20review%20of%20early%20int
ervention.pdf)
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coursemaybe15
. Thisbodyofresearchisimportantnotonlybecauseitunderscores
theneedtoavoidfatalism,assumingthataspecificchildisgoingtobeproblematic,
butalsobecauseitdrawsattentiontotheimportanceofresiliencefactorsthathelp
childrencounteradverseexperiences.
Whatlevel
of
help
is
needed?
2.9 Whenaneedforhelpisidentified,childrenneedprofessionalstomakeagood
assessmentthatleadstotherightlevelofresponsetotheirneeds. Itiseasytooffer
adefinitionofwhichfamiliesorproblemscanbehelpedthrougharangeof
preventiveservicesbut,inpractice,therearemanydifficultiesinassigningfamilies
toappropriateservicesthatmeettheirneeds.
2.10 Thestandardcategoriesofpreventionare:
universal
primary
prevention
addressing
the
entire
population
and
aiming
toreducethelaterincidenceofproblems,e.g.theuniversalservicesof
health,education,
selectiveprimarypreventionfocusingongroupswhichresearchhas
indicatedareathigherthanaverageriskofdevelopingproblems. Manyof
theinterventionsrecommendedinGrahamAllensreviewfallintothis
category,e.g.offeringadditionalsupportservicestosingle,teenagemothers;
secondarypreventionaimingtorespondquicklywhenlowlevelproblems
ariseinordertopreventthemgettingworse. Thisareaofmultiagencywork
hasbeenthesubjectofpolicydevelopmentsincetherefocusingdebatein
199516
andEveryChildMattersin2003;
tertiaryhelp/preventioninvolvingaresponsewhentheproblemhas
becomeserious,e.g.childprotection,hospitalcare,criminaljustice;and
quarternaryhelp/preventionprovidingtherapytovictimssothattheydo
notsufferlongtermharm,e.g.therapyforvictimsofsexualabuseor
therapeutichelpforlookedafterchildren.
2.11 Thisreviewisremittedtoreformthechildprotectionsystemwhichfallsintothe
tertiaryandquaternarylevels:theserviceofferedtofamilieswhenthereare
significantproblemsinthecareofchildrenandyoungpeopleandtheyarethought
tobesuffering,orarelikelytosuffer,significantharm. Whenweconsiderthisfrom
theperspectiveofthejourneyofthechildfromneedingtoreceivinghelpweare
inevitablyinterestedintheearlystagesofchildmaltreatmentandtheservices
providedatbothprimaryandsecondarylevelsofpreventiontoreducethenumber
ofchildrenwhosufferseriousmaltreatment.
2.12 However,thelinkbetweenthelevelsofservicesisnotclearcut. Assessingchildren
andfamiliesandassigningthemtotherightleveloftherighttypeofserviceisa
difficulttask. Thereareparticularchallengesinvolvedinassessingwhetherchildren
15
Bifulco,
A.
(2008),
Risk
and
resilience
in
young
Londoners
in
Treating
traumatised
children:
Risk,
resilienceandrecovery,ed.Brom,D.,PatHorenczyk,R.,&Ford,J.16
ChildProtection.MessagesfromResearch(1995)HMSOISBN01103217811
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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.
2.14 However,themostproblematicgrouparethosewherethefirstsignslooklowlevel
buttheyarereallythetipofanicebergandthechildisactuallybeingseriously
harmed.So,
to
give
areal
example,
asupport
worker
may
visit
ahome
and
be
told
thatonechildisvisitinghisgrandmother. Shecanseethathisbrotherandsisterare
wellcaredfor. Beingtoldthatachildisvisitingagrandparentdoesnot,onitsown,
ringalarmbells. Ifthatchildcontinuestobeoutofsightonfuturevisitsaswell,then
therecomesapointwhenthesupportworkershouldbecomesuspicious,though
thisrequiresjudgment. Thereisnosimplerule. Inoneformofmaltreatment,
parentsscapegoataparticularchildandtakegoodcareoftheothers. Inthiscase,
theabsentchildwas,infact,lockedinabedroomstarving.
2.15 Thislastpossibility,thatthepresentingproblemthoughlowlevelinitself,maybe
thesurfaceevidenceofadeeperproblemreceivesmoreattentionwhentherehas
beenamajorchilddeathstoryinthemedia. Workersoftenthenmakemorereferralstochildrenssocialcareincase,onfurtherinvestigation,thechildisfound
tobesufferingsignificantharm. AfterthedeathofPeterConnellyandthe
associatedpublicityinwhichprofessionalswerecastigatedforfailingtoseehewas
beingmaltreated,therewasanaverage11%riseinreferralsintheyearthat
followedandthishassustainedsincewithfiguresfor200910showinga10.4%
increaseonthepreviousyear17
. Forsomelocalauthorities,therisehasbeenhigher
thantheaverage.
2.16 Puttingmorefamiliesintothesocialcarecategoryisproblematicintwomainways.
Oneof
the
problems
is
ahigh
level
of
referrals
that,
on
closer
examination,
are
not
deemedtoneedaservice. Thismeansthatchildrenandfamiliesgothrougha
stressfulprocessfornobenefitandsocialcareservicesareoverwhelmedin
searchingthroughthereferralsforthosecaseswherechildrenaresuffering,orare
likelytosuffer,significantharm. Theirabilitytoprovideeffectivehelptothemost
seriouscasesisreducedbecausesomuchresourceisdevotedtodealingwiththe
influxandprioritisingcases. Whilesomeofthesefamiliesneedthatcloser
examinationtomakeaninformedjudgmentaboutachildssafetyandwelfare,itis
17
DfE:
Children
In
Need
in
England,
including
their
characteristics
and
further
information
on
childrenwhowerethesubjectofachildprotectionplan(200910ChildreninNeedcensus,Final):
http://www.education.gov.uk/rsgateway/DB/STR/d000970/index.shtml.
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clearfromthebigvariationsinreferralratesaroundthecountrythatthereis
considerablescopeforhelpingpeopleworkinginprimaryandsecondarylevel
servicestomakefewer,moreappropriatereferrals. Ifthiscanbeachieved,then
familieswillexperiencefewerunproductivereferralstochildrenssocialcareandthe
caseloadsinchildrenssocialcarewillbecomemoremanageable,andsohelpto
createthe
conditions
in
which
help
can
be
provided
and
amore
effective
service
to
childrenandfamiliescanbeconstructed.
Thescaleoftheproblem
2.17 For200910,DepartmentforEducationfiguresreportthat18:
603,700referralsweremadetochildrenssocialcareservices,anincreaseof
56,700(10%)fromthe200809figuresandan11%increasefrom200607;
395,300initialassessmentswerecompletedwithintheyear(65.5%ofthe
totalreferrals
in
the
year),
an
increase
of
46,300
(13%)
from
the
2008
09
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
startedanepisodeofneed19
in200910and694,000wereinneedatsome
pointin
the
year;
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).
2.19 Withthis
level
of
unmet
need,
the
contribution
of
universal
services
and
services
targetedonhighriskgroupsisevenmoreimportant,sincetheymayreachchildren
whosemaltreatmenthasnotyetbeenbroughttotheattentionofchildrenssocial
care,orwhosesituationdoesnotmeetthethresholdforstatutoryintervention. By
18DfE:ChildrenInNeedinEngland,includingtheircharacteristicsandfurtherinformationon
childrenwhowerethesubjectofachildprotectionplan(200910ChildreninNeedcensus,Final):
http://www.education.gov.uk/rsgateway/DB/STR/d000970/index.shtml.19
ChildrenAct1989,S17achildinneedisdefinedasachildrequiringadditionalsupportfromalocal
authority,
if
he
or
she
is
unlikely
to
achieve
or
maintain,
or
have
the
opportunity
of
achieving
or
maintainingareasonablestandardofhealthanddevelopmentwithoutsupport,ifhisorher
developmentislikelytobesignificantlyimpaired,withoutsupportand/orifheorsheisdisabled.
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26
reachingthesefamiliesearly,primaryandsecondarylevelservicescanreducethe
numberofchildrenwhomightotherwiselatersuffersignificantharm.
2.20 Therearenationalstatisticsavailableabouttheprevalenceofactualorpotentially
harmfulcircumstancesinwhichchildrenarelivingandlocalareashavethetask(and
statutoryduty
in
the
case
of
the
Joint
Strategic
Needs
Assessment)
of
building
up
a
profileoftheirownlocalneed,thathelpsprofessionalsunderstandthepotential
varietyofresponsesthatmayberequiredintheirareaandtocommission
appropriateandrelevantservices. Domesticviolenceisasignificantissuelinkedto
childprotection,anditsprevalencemaybevariedindifferentlocalities. Services
needtobedevelopedtoreflectthis:
thereare120,000victimsinanyyearwhoareathighriskofbeingkilledor
seriouslyinjuredasaresultofdomesticabuse20
;
69%ofhighriskvictimshavechildren21;
in75%
to
90%
of
incidents
of
domestic
violence,
children
are
in
the
same
or
thenextroom22
;
childrenwholivewithdomesticviolenceareatincreasedriskofbehavioural
problemsandemotionaltrauma,andmentalhealthdifficultiesinadultlife23
;
thelinkbetweenchildphysicalabuseanddomesticviolenceishigh,with
estimatesrangingbetween30%to66%dependinguponthestudy24
. The
RoyalCollegeofPsychiatristsstates:Abouthalfthechildreninsuchfamilies
havethemselvesbeenbadlyhitorbeaten. Sexualandemotionalabuseare
alsomorelikelytohappeninthesefamilies25
;
thereareanestimated50,000to200,000youngpeopleintheUKcaringfora
parentwith
mental
health
problems26;
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)
Domestic
violence
and
children:
what
we
know
from
research
in
Mullender,
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),
Mothering
through
domestic
violence
25http://www.rcpsych.ac.uk/mentalhealthinfo/mentalhealthandgrowingup/domesticviolence.aspx
26MyCare,TheChallengesFacingYoungCarersofParentswithaSevereMentalIllness,TheMental
-
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27
morethan2.6millionchildrenintheUKlivewithhazardousdrinkers,
705,000livewithadependentdrinkerandmorethan8millionpeopleare
affectedbyafamilymembersalcoholuse27
.A2010NSPCCChildLinesurvey
revealedmorethan4,000children,someasyoungasfiveyearsold,had
contactedtheserviceduringthepreviousyearworriedabouttheirparents
excessivedrinking.
Many
of
these
callers
also
reported
instances
of
abuse
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
socialskills
that
develop
during
the
earliest
months
and
years
of
life;
and
(4)
thecapacitytoincreasetheoddsoffavourabledevelopmentaloutcomes
throughplannedinterventions. Earlypathways,thoughfarfromindelible,
establisheitherasturdyorfragilestageonwhichsubsequentdevelopmentis
constructed30
.
2.22 Governmentpolicyinrecentyearshasbeendesignedinrecognitionthattheservices
childrenandfamiliesreceivehavetoooftenbeenlimited,becauseofthefailureof
professionalstounderstandoneanother'srolesortoworktogethereffectively.
Policieshaveemphasisedthebenefitstochildrenandyoungpeopleofprofessionals
workingtogether
with
families
to
try
to
understand
their
needs
early
on,
identify
the
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
30National
Research
Council
(2000)
From
Neurons
to
Neighbourhoods:
The
Science
of
Early
ChildhoodDevelopment,WashingtonD.C.
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28
supportandservicesneeded,andworktogethertomeetthem. Evidencesubmitted
tothereviewshowsstrongsupportforsharedthinkingandassessmentamong
professionals,where,withthefamilysconsent,afullerunderstandingofthefamilys
needsisestablished,usingaformatcommontoalllocalagenciesthatcanbeshared
amongthemasthefamilypermits. Cruciallysuchanassessmentshouldseekthe
viewsand
feedback
of
the
children
involved
so
that
their
voice
can
inform
the
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
abuseand
neglect.
Universal
services
play
an
important
role
in
the
provision
of
informationtoparentsandchildren. Childrenhavecitedtheimportanceofaccessto
goodinformationaboutabuseandaboutservicessotheycanunderstandwhether
theyarebeingharmed. Theyhavealsostressedtheimportanceoftellinginasafe
environment;usuallyuniversalservicesareseenbychildrenasasafehaven.
2.25 Rolessuchasnamedanddesignatedhealthprofessionalorschoolleadfor
safeguarding,forexample,haveanimportantparttoplayinthechildprotection
system. Designatedleadswhoareexperiencedinchildprotectioncanhelp
colleaguesthinkthroughworryingsignsanddecidewhetherornotreferralto
childrenssocial
care
is
needed.
To
prevent
neglect
and
abuse,
the
provision
and
supportprovidedthrougharangeofuniversalservices,suchaseducationandhealth
careiscritical.
2.26 Therearealreadyanumberofpolicycommitmentsforuniversalandmoretargeted
servicestomakeearlyhelpmoreeffective,includingsupportfortheprovisionof
freenurserycareforpreschoolchildren. SureStartChildrensCentreswillbe
reformedwithanincreasedfocusonearlyinterventionsupportforthefamiliesin
greatestneedandgreaterinvolvementofvoluntaryandcommunityorganisations
withatrackrecordofsupportingfamilies.
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29
2.27 Similarlythenumberofhealthvisitorsisduetobesubstantiallyincreased. Health
visitorsaretrainednursesormidwiveswithspecialisttraininginfamilyand
communityhealth. Theyareskilledatspottingearlyissues,whichmaydevelopinto
problemsorriskstothefamilyifnotaddressed,forexampleaparentstrugglingto
copeorachildhealthissuewhichneedsspecialattention. Thenationalhealth
visitingprogramme
aims
to
increase
overall
numbers
of
health
visitors
by
4200
by
April2015to:
develop,supportandpromotetheservicessetupbyfamiliesand
communitiesthemselvesaspartoftheYourCommunityservice;
delivertheHealthyChildProgrammeensuringallchildrengettheessential
immunisations,healthanddevelopmentchecksaspartofaUniversal
Service;
providearapidresponsewithexperthelpforproblemslikepostnatal
depressionorasleeplessbaby,aspartoftheUniversalPlusService;and
provideongoing
support
as
part
of
arange
of
local
services,
working
together
andwithdisadvantagedfamiliestodealwithmorecomplexissuesovera
periodoftime,undertheUniversalPartnershipPlusService31
.
ThisisbeingtakenforwardinpartnershipwithSureStartChildrenCentres,local
authoritiesandthenewHealthandWellbeingBoardsthatlocalauthoritieswilllead.
2.28 ThePublicHealthWhitePaper,HealthyLives,HealthyPeople:Ourstrategyfor
publichealthinEngland32
,respondstoProfessorSirMichaelMarmotsFairSociety,
HealthyLives
report33
,andaimstotacklethewidersocialdeterminantsofhealth.
Thisnew
approach
will
aim
to
build
peoples
self
esteem,
confidence
and
resilience
rightfrominfancy,withstrongersupportforearlyyears.
2.29 Alongsidethisreviewintochildprotection,thereareotherreviewsestablishedby
theGovernmentthatareveryrelevanthere. ClareTickellsreview34
oftheEarly
YearsFoundationStageextendsacrosstheuniversalserviceofeducationandcare
andisconsideringhowtoidentifyandprovidesupportforchildrenwhoarealready
showingdevelopmentaldelaysorbehaviouralproblemsandwhoareinneedof
additionalhelp. FrankFieldsreview35
lookedathowtoprovideabettereconomic
environmentforfamilies,povertybeingamajorcauseofadditionaldifficultiesin
providinggood
care
and
made
recommendations
on
reducing
child
poverty.
Graham
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/)
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30
Allensreview36
intoearlyinterventionhasalreadymadeastrongargumentforthe
economicvalueinprovidinghelpintheearlyyearsandhasidentifiedanumberof
programmesofhelpthathaveevidenceofsomeeffectivenessinimproving
childrenslifechances.
2.30 TheCoalition
Programme
for
Government
made
acommitment
to
investigate
anew
approachtosupportingfamilieswithmultipleproblems. Thereareanestimated
120,000familieswithmultipleproblemswith46,000havingoneormorechild,aged
1015withbehaviourproblems. Overathirdofthesefamilieshavechildrensubject
tochildprotectionprocedures37
. Thesefamiliesexperiencearangeofhealthissues,
includingpoormentalhealth,alcoholandsubstancemisuse. Evidenceshowsthat
thesefamiliesarealsoatriskofexperiencingviolenceinthehousehold.
2.31 Therearethreestrandstothestrategy:
investto
test
and
share:
asmall
number
of
exemplar
areas
are
testing
out
newapproaches;
learnfromsuccess: mentorareaswithatrackrecordofsuccessfully
supportingfamiliesareactingasdisseminationhubs,sharingtheirknow
howtohelpothersintheirareas;and
breakdownbarriers: currentlyupto20localagenciescansupportthesame
family,eachwiththeirownfundingrulesandregulations. Thishasbeen
showntostandinthewayofcreatingasingleservicededicatedtotacklingall
theproblemsaffectingasinglefamily. From1April2011localagenciesinthe
first16areas(or28localauthorities)willbeabletocreateaCommunity
Budgetfreeing
up
money
to
be
spent
on
innovative
types
of
family
service.
2.32 ThenewstrategywillbuilduponFamilyInterventions(FIs)thatareonewayof
supportingvulnerableanddisadvantagedfamilies. Theyuseamultiagency
approachwithanintensiveandpersistentstyleofworkingtochallengeand
supportfamilies. TheFImodelfocusesonhavingakeyworkerwholinksinwith
otheragenciesincludinghealthtoaddresstheneedsofeachfamilymember.
2.33 TheFamilyNursePartnership(FNP)programmeisapreventiveprogrammefor
vulnerableyoungfirsttimemothers. Speciallytrainednursesofferintensiveand
structuredhome
visiting
from
early
pregnancy
until
the
children
are
two,
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
Patterns
of
Specialist
Mental
Health
Usage
in
England,
ONS.
http://www.neighbourhood.statistics.gov.uk/dissemination/Info.do?page=analysisandguidance/analy
sisarticles/patternsofspecialistmentalhealthserviceusageinengland.htm.
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31
hasshownsignificantbenefitsfordisadvantagedyoungfamilies,togetherwith
substantialcostsavings.
2.34 EarlyevaluationinEnglandsuggeststhatFNPcanbedeliveredsuccessfullyandthat
takeupisgoodwithpromisingpotentialimpacts. Mothersarereducingsmokingin
pregnancyand
ahigh
proportion
are
initiating
breastfeeding;
they
have
significantly
improvedmastery,aformofselfesteemlinkedtopositivebehaviourchange,atthe
endoftheprogrammecomparedtothestart;andtheyareverypositiveabouttheir
parentingcapacity,reportinghighlevelsofwarmparenting,lowlevelsofharsh
disciplineandlevelsofparentingstresssimilartothatinthenormalpopulation. FNP
childrenappeartobedevelopinginlinewiththepopulationingeneral,whichisvery
promisingasthisgroupusuallyfaresmuchworse.
2.35 AreviewofinterventionstopreventchildmaltreatmentintheLancetrateditasthe
programmewith'bestevidence'describeditashavingundergonethemostrigorous
andextensive
evaluation
of
child
maltreatment
outcomes38.
Multiagencylocalityteamswithsocialworkexpertise
2.36 Childrensproblemsmaybenoticedbytheimmediateorextendedfamilywhoseek
helporbyprofessionalsincontactwithfamilymembers,forexampleprimaryhealth
carecentres,healthvisitorservices,midwifery,antenatalservicesandGPpractices,
schools,earlyyearsservicessuchasnurseriesandchildrenscentres,thepolice,
adultmentalhealthservices,substancemisuseservices,andhousingservices. There
are,therefore,alargenumberofprofessionalsandthepublicwhomayseesignsfor
concernthat
achild
is
being
abused
or
neglected.
Deciding
how
serious
these
signs
areisnotalwayseasy.
2.37 Asmentionedearlier,abuseandneglectrarelypresentinanunequivocalway,but
peopleseeevidencethatisambiguous;itcouldindicatemaltreatmentorhavea
morebenignexplanation. Manyinuniversalserviceswillhavehadsometrainingin
recognisingmaltreatmentandthoseineducationandhealthhaveaccesstomore
experiencedcolleagueswhoarethedesignatedleadsforchildprotectionandwho
canhelpthemjudgewhethertheirevidencewarrantsfurtheractionornot.
However,theevidencegiventothisreviewsuggeststhatthedecisiontoreferonto
childrenssocial
care
is
experienced
as
problematic
by
many.
The
variation
in
referralratesaroundthecountryandthefluctuationsinreferralratesinresponseto
highprofilechilddeathsbothsuggestthatcomplexity,uncertainty,andanxietyplay
asignificantpartinmakingthedecisiontorefer.
Decidingwhatlevelofsupport/safeguardingresponseisrequiredremainsa
vexingprobleminchildwelfare,anddecisionsareoftentakeninchallenging
circumstancesandwithlimitedinformation39.
38
MacMillan,
H.L.,
Wathen,
C.N.,
Barlow,
J.,
Fergusson,
D.,
Leventhal,
J.M.
and
Taussig,
N.
(2009),
Interventionstopreventchildmaltreatment andassociatedimpairment, Lancet373:25026639
Broadhurst,K.,White,S.,Fish,S.,Munro,E.,Fletcher,K.,&Lincoln,H.(2010),Tenpitfallsandhow
-
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32
2.38 Thereviewhasbeenimpressedbythesolutionsdevelopedinsomelocalareas
wheremultiagencyteamsthatincludesocialworkersarebasedinthecommunity
withuniversalservices. Thisallowsthoseintheuniversalservices,whobecome
concernedaboutachildssafetyorwelfare,toreadilydiscussthiswithan
experiencedteamwhocancheckwhatelseisknownaboutthechildandfamilyand
provideevaluation
and
assistance.
This
team
enables
adeeper
professional
considerationofthepresentingcontextandisresultinginbetterdecisionsabout
howtoallocateearlyhelpand/ormoreintensesocialcaresupport. Thisapproach
allowsprofessionalsandpractitionerstohaveaccesstosocialworkexpertise,
helpingthemtomakebetteruseoftheircloserknowledgeandengagementswith
thechildandfamily. Morespecifically,theprofessionalanxietythatexistsintrying
tounderstandtheseverityoftheirconcernsaboutachildislessened. Thisseemsto
comefromtheprovisionofsocialworkexpertisetotalkthroughconcernbeforea
formalassessmentorreferralismade. Moresenseismadeofthepresenting
concernandinformation,andaconsensusreachedaboutbestnextsteps.
2.39 Theevidencefurthershowsthatthenumberofinappropriatereferralstochildrens
socialcareisreduced. Theteamsarereportedtobehelpingtodirectthosefamilies
inneedofadifferenttypeofhelptoanappropriatealternative.
2.40 Theselocalinnovationshavebeenofdifferentforms. Some,forexample,havebeen
socialworkledandsomeheadedbythepolice. Thereviewwillexplorehowlocal
areascanbesupportedindevelopingtheirownarrangementsforteamstomeetthe
localneedsofthecommunity. Becausesuchteamsprovidebenefittomany
agencies,itisperhapsappropriatethattheirfundingshouldalsobesharedamongst
theseagencies.
Conclusion
2.41 Thereisastrongcaseforprovidingprimaryandsecondarypreventiveservicesto
preventmaltreatmentoritsfurtherescalation. Forchildren,providinghelpearly
reducestheamountofdistressorharmtheymaysufferandweknowmoreabout
preventingmaltreatmentthanstoppingitsrecurrence. Offeringhelpearlycanalso
bedoneinarespectfulwaythatdoesnotunderminetheresponsibilityofthe
parentstobringuptheirchildren. However,theproblemofidentifyingthose
childrenreceiving
early
intervention
services
on
aconsensual
basis
in
partnership
withparents,butwhoaresuffering,orlikelytosuffer,significantharmisnoteasy.
Thereviewhasbeenimpressedbythoselocalinnovationsthathavetackledthis
problembycreatingmultiagencyteamswhereconcernscanbeexaminedandmore
accuratejudgmentsmadeaboutwhatlevelandtypeofhelpisneeded.
2.42 Commontothesesuccesseshasbeenthecreationofchannelsthroughwhich
practitionersfromdifferentagenciescandiscusstheirconcerns,eitherinameeting
roomorsimplyoverthetelephone. Thevalueoftheseinformalbutstrategic
conversationsisthattheyenableprofessionalstoexchangeideaswithoutneedingto
toavoidthem:whatresearchtellsus,p.3
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33
enterformalproceedings. Itistheseinformalrelationshipsbetweendifferenttypes
ofexpertwhichthereviewholdstobecrucialtoimprovingearlyhelp. Whendone
properly,thisshouldhelptoreducethenumberofunnecessaryreferralsto
childrenssocialcare,freeingtimeandresourcesinbusydepartments. Butitshould
alsogiveuniversalservicesandfamilysupportworkersbetteropportunitiestotalk
throughconcerns,
even
when
they
are
not
immediate
child
protection
issues,
and
so
offerabetterchanceofthesechildrenreceivingappropriateattentionmorequickly.
Initsnextphasethereviewwillconsiderhowthismutuallybeneficialrelationship
betweenservicescanbefosteredandencouraged.
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34
ChapterThree: Childandfamily
socialwork
Introduction
3.1 Acentralpartofthisreviewsremitistomakerecommendationsonimprovingsocial
workpractice. Thischapterconsiderstheexpertisesocialworkersneedtobeableto
exerciseandthenextchapterfocusesonhowthesocialcareorganisationcanhelp
(orhinder)theminacquiringandusingthatexpertise.
3.2 Whenchildrenandyoungpeoplecomeintocontactwithchildrenssocialcare,their
fundamentalneedisforunderstandingoftheproblemstheyandtheirfamilieshave,
andfor
the
provision
of
help
to
resolve
them
in
order
to
improve
their
safety
and
wellbeing. Howcansocialworkersbehelpedtoprovidetheunderstandingand
helpthatchildrenandyoungpeopleneed? Howcantheyhelpparentschangeso
thattheyprovidesafeandgoodqualitycare? TheSocialWorkTaskForceandthe
SocialWorkReformBoardhavesummarisedtheirambitionsforreform40
:
bettertrainingwithemployers,educatorsandtheprofessionalltakingtheir
fullshareofresponsibilityforinvestinginthenextgenerationandinenabling
socialworkersalreadyinpracticetodeveloptheirskillscontinuously;
improvedworkingconditionswithemployerssigninguptonewstandards
forthe
support
and
supervision
of
their
frontline
workforce
that
make
good
practicepossible;
strongerleadershipandindependencewiththeprofessiontakingmore
controloveritsownstandards,howitisunderstoodandvaluedbythe
public,andthecontributionitmakestochangesinpolicyandpractice;
areliablesupplyofconfident,highquality,adaptableprofessionalsintothe
workforce,wheretheycanbuildlongtermcareersonthefrontline;
greaterunderstandingamongthegeneralpublic,serviceusers,other
professionalsandthemediaoftheroleandpurposeofsocialwork,the
demandsofthejobandthecontributionsocialworkersmake;and
moreuse
of
research
and
continuing
professional
development
to
inform
frontlinepractice.
3.3 Thisreviewendorsestheiranalysisoftheproblemsandtheirrecommendationsfor
improvingthequalityofsocialworkpractice. However,italsoseekstobuildon
thesefoundationstospecifythespecialistskillsandknowledgeneededinchildand
familysocialwork. Thereisnowasubstantialbodyofresearchevidencethatcan
helpsocialworkersmakebetterassessmentsofchildrensneeds,andoffermore
effectivehelptofamiliestocreatesaferandmorenurturingparenting. Skilledsocial
40SocialWorkTaskForce(2009),BuildingaSafeandConfidentFuture,p6
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35
workerscanmakeasignificantdifferencetothequalityofchildrenslives. Farmer41
illustratesthispointwell,reportingthatthehighestsuccessrateforreunifying
childrenwiththeirbirthfamilieswas64%whilethelowestwas10%,withthekey
determinantbeingtheskillandinvestmentofthesocialworkteam.
3.4 However,as
the
first
report
of
this
review
concluded,
we
need
to
focus
not
only
on
whatexpertisewewantanindividualsocialworkertohave,butalsoonwhatwork
environmenthelpsthemdevelopandusetheirexpertise.
Indesign,weeitherhobbleorsupportpeoplesnaturalabilitytoexpressforms
ofexpertise42
.
3.5 Itisimportanttoseethequalityofanyonesocialworkersperformanceasnotjust
beingduetotheirexpertisebutarisingfromtheinteractionbetweenwhatthey
bringtothejobandtheaspectsoftheworkenvironmentthatmakeiteasieror
harderfor
them
to
exercise
that
expertise.
A
dysfunctional
workplace
makes
it
difficultforeventhemostskilledandmotivatedsocialworkerstoachievethelevel
ofeffectivenessthattheywouldlike. Thisappliesnotonlytothemajorobstaclesto
goodpracticesuchasheavycaseloadsorlackofsupervision,buttothemoresubtle
influencesofthedesignofassessmenttools,ororganisationalmessagesabout
priorities. Thelessonslearnedinothersafetycriticalareasofworksuchashealth
andaviationclearlyshowthatstudyingtheinterplaybetweenworkersandthework
environmentisthemostproductivewayofimprovingstandardsandreducing
errors43
.
3.6 This
chapter
begins
by
looking
at
how
people
exercise
expertise,
how
they
use
their
differentreasoningcapacitiesandemotionsbecausethishasimplicationsforhow
theyaresupportedtoreachahighlevelofperformance. Thisaccountbringsout
howengagingwith,andunderstandingachildandtheirfamily,involvesfarmore
thanlogicalreason. Whensocialworkersaretalkingtoachildandfamilyintheir
home,theyaredrawingonseveralsourcesofi
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