Lancashire County Council Fostering Services

Lancashire County Council Fostering Services Inspection report for la fostering agency

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SC041383 Unique reference number 26 September 2008 Inspection date Helen Humphreys / Jeffrey Banham Inspector Key Type of Inspection

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Lancashire County Council Address PO Box 162 Preston PR1 3EA 01772 264429 Telephone number

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Email

Lancashire County Council Registered person Anthony Morrissey Registered manager

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Responsible individual

13 August 2007 Date of last inspection .

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Responsible individual

This document may be reproduced in whole or in part for non-commercial educational purposes, provided that the information quoted is reproduced without adaptation and the source and date of publication are stated.

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Responsible individual

You can obtain copies of The Children Act 2004, Every Child Matters and The National Minimum Standards for Children's Services from: The Stationery Office (TSO) PO Box 29, St Cripins, Duke Street, Norwich, NR3 1GN. Tel: 0870 600 5522. Online ordering: www.tso.co.uk/bookshop

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About this inspection

The purpose of this inspection is to assure children and young people, parents, the public, local authorities and government of the quality and standard of the service provided. The inspection was carried out under the Care Standards Act 2000. This report details the main strengths and any areas for improvement identified during the inspection. The judgements included in the report are made in relation to the outcome for children set out in the Children Act 2004 and relevant National Minimum Standards for the establishment.

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The inspection judgements and what they mean

this aspect of the provision is of exceptionally high quality Outstanding: this aspect of the provision is strong Good: this aspect of the provision is sound Satisfactory: this aspect of the provision is not good enough Inadequate: 3 of 13 Inspection Report: Lancashire County Council Fostering Services, 26 September 2008

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Brief description of the service

Lancashire County Council's (LCC) fostering agency is part of the Directorate for Children and Young People. There are five fostering teams across the County covering the areas of Burnley, Pendle and Rossendale; Hyndburn and Ribble Valley, Preston, Lancaster Fylde & Wyre and Chorley, South Ribble and West Lancashire. There are also two Fostering Focus teams, one in Burnley and one in Preston which are responsible for Countywide Fostering Focus carers. This service is managed within the Hyndburn and Ribble Valley Locality The operational fostering services are under locality line management arrangements. Heads of Children's Integrated Services (CIS) in each locality are the decision-makers for fostering in addition to managing the children's fieldwork services. A major re-design of children's services has recently been completed and has resulted in the creation of Heads of CIS in each locality and Service Managers

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Brief description of the service

for Children Looked After (CLA) and team managers in each locality with responsibility for fostering. Lancashire currently has an acting Registered Manager and a project manager, neither of whom have operational responsibility, but are responsible for the fostering panel business, review of foster carers and quality assurance in conjunction with the locality managers. The service provides the following fostering resources: Fostering Focus (Specialist Fee Paid Fostering), Task Centred Fostering (undertaking work associated with short-term foster care), and permanence, undertaking work associated with long-term fostering. The localities have CLA and Fostering teams as well as permanence and adoption teams in each locality.

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Summary

This was an announced inspection which was carried out over seven days and included a review of all the key National Minimum Standards (NMS) and all areas of the service. This inspection followed three monitoring visits, the last one being April 2008 which were undertaken following the last full inspection in August 2007, where the service was found to be inadequate with significant failings. Since the last monitoring visit the service has been subject to considerable change at all levels and this change was evidenced is all areas of the service. The service now has many strengths including good support from the Looked After Children (LAC) nurses and the Primary Health Care Trusts (PCT) in providing a more consistent service. The matching processes are safe, allegations against carers are investigated appropriately and the panel procedures are very robust. The service has appointed a head of a virtual school who is clear

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Summary

in what support looked after children need in order to do well at school and this appointment will progress that work. The service has a strong children's rights service, and there are opportunities for young people to influence the work of the council. The service has strong experienced managers at every level who are leading a committed work force to develop the service and provide a good support to carers and young people. The service recognises all the further areas of development and of the work still required to operate a good service. The Placement Information Record (PIR) is not fit for purpose and the inadequacies it presents affects many of the areas of the work of the fostering service, including the storing and sharing of information. The service does not have a consistent method of dealing with complaints effectively. The service has a number of new developments in hand and the challenge is to

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Summary

ensure that these are implemented thoroughly, although it is clear that there is sufficient management capacity and willingness to carry this out. The overall quality rating is satisfactory. This is an overview of what the inspector found during the inspection. 4 of 13 Inspection Report: Lancashire County Council Fostering Services, 26 September 2008

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Improvements since the last inspection

Since April 2008 the service has gone through considerable change in the way in which it operates and the work undertaken is significant. This work has been led by the Executive Director and acting Head of Children's Services and the impact of this work was evident throughout the inspection, from the standard of work within the files, comments from staff and carers and the presentation of managers at every level. The service has undertaken more improvement to the service than the previous Ofsted inspection required. In conjunction with the fostering panels all carer's files have been audited, carers have been re-assessed and therefore the service is now confident that all carers are approved who have children placed and the foster carer agreements are accurate. This means that the service is now complying with the Fostering Regulations 2002. The procedure for approving exemptions has been revised,

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Improvements since the last inspection

and there is general understanding about when exemptions are applicable and those seen were accurate. This ensures that all exemptions are appropriate and safe. The service has revised the process for applying for Criminal Record Bureau (CRB) Disclosures and all checks are now in place and there is a robust system to monitor this and the renewal of checks, to ensure that no unauthorised people have access to fostered children. All appropriate paper work is in place so that carers are clearer on their responsibilities in relation to health and safety, safe caring and risk management. Health care action plans are on file and copies are sent to carers following the health care assessments, and the LAC nurses are available to give advice on the overall content of the plans. This ensures that health care matters are being identified and followed up as required. The service has now appointed two agency decision makers for panel business

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Improvements since the last inspection

which is increasing the consistency in decision making. The service has revised the guidance for carers and staff on obtaining permission for children to go on trips and other activities. This is now much clearer and less bureaucratic but will need time to be fully implemented. The service has revised the payments of fees and allowances and intends to pay carers the Government recommended rates by April 2009, with plans in hand to develop a fairer payment scheme in the following years. All staff who work in children's services have undergone a training programme, which includes training on assessment of carers and relevant legislation. This has had significant impact on staff in that they now have a broader understanding of fostering and how the service fits into children's services. One staff member said 'we now understand that fostering is every one's business'. The service has developed a learning and development

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Improvements since the last inspection

strategy for staff and carers. Although this is in the early stage of implementation carers and staff are aware of the contents and training was beginning to have an impact on practice, for example the re-training of staff on undertaking assessments.

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Helping children to be healthy

The provision is satisfactory. The service promotes the health and well being of the children placed. The number of young people having their health care assessments is improving, and health care action plans are on file and with foster carers. All carers have a named health care professional they can contact for advice and help. The service receives good support from the LAC nurses who understand the needs of Looked After Children and who are wiling to develop additional services to support carers and young people. The statutory review process includes a review of the health care needs of the young people to ensure that they are being met and highlight the need additional services, for example Community Adolescent Mental Health Team (CAMHS). All carers have signed medical consent and are aware of what this means, and young people said that their health care needs are being met and could give examples of healthy food that they eat and

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Helping children to be healthy

5 of 13 Inspection Report: Lancashire County Council Fostering Services, 26 September 2008 activities in which they take part. The access to the CAMHS is improving but is still not consistent across the county, but a specific service in the east of the county is an illustration of the PCT and Children's Services working together to provide a service which is well received and effective. Health care training is provided for carers and identified within the new training plan but is as yet not fully implemented. An insufficient number of carers have first aid training or qualification as this has not been provided for many years, and although plans are in hand to roll out a programme it will take time for all carers to be re-trained. The PIR is used as the placement agreement. There is general recognition across the County that this is not an appropriate document and there are plans in hand to amend this. However at present the document does

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Helping children to be healthy

not allow appropriate and up to date information about the health care needs to be recorded, and is confusing in that it contains historic information which is no longer relevant.

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Protecting children from harm or neglect and helping them stay safe

The provision is satisfactory. The recruitment and selection files demonstrate that good procedures are in place and staff are recruited safely. In particular the process for obtaining CRB Disclosures for staff and carers is robust. However the processes for 'signing off' of appointments is not evidenced on the file, and are not currently undertaken by fostering service managers to indicate that they agree with the appointment and that they comply with the Fostering Service Regulations 2002. All carers seen were providing a good standard of care, there is now no over crowding in carers' homes. Health and safety checklists, risk assessments and safe caring plans are in place and there is a system for monitoring and review. However some forms, for example health and safety checklists, are not always accurate for the child in place. Outcomes for the children seen are good and pragmatic decisions had been made in respect of approval of some carers through

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Protecting children from harm or neglect and helping them stay safe

the remedial work. All carers now have appropriate paperwork to support the placement and the match, and children are placed with carers who are approved. There is recognition that a considerable amount of remedial work has been undertaken to ensure that all carers approval is appropriate and this is evidence clearly on file, including retrospective approval and changes. The majority of this work has been undertaken in the past three months to ensure that there is compliance and staff are clear in what is expected of them. There is good use of the placement planning meetings and it is clear that 'no information no placement' culture is well known by carers and staff. As a result of the remedial work and the de-registration of a significant number of carers there is a high number of children and young people placed with Independent Fostering Agencies (IFAs). Although there is a preferred provider list in place there is no overall

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Protecting children from harm or neglect and helping them stay safe

commissioning strategy. It is not clear if there are sufficient monitoring processes in place to monitor placements in IFAs, to ensure that the placements remain appropriate. The arrangements for the making of exemptions has been revised and is appropriate and the overall number of exemptions has declined. There remains confusion over the use of task centred, long term and permanent placements terminology, and that carers cannot have their approval changed for a specific child unless this decision has been made at a planning meeting and seen as in the best interests of the child. The PIR which is used as the placement agreement, does not entirely comply with the Schedule 6, it contains historic information and is not user friendly. The agreement does not set out clearly what the authority is requiring the carer to do in respect of each individual child. Carers have safe caring policies in place and there is a process for

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Protecting children from harm or neglect and helping them stay safe

monitoring and review. Training is identified in the training hand book but is not as yet fully implemented. Information provided in the foster carers handbook for carers on child protection matters and behaviour management is clear. None of the young people who met inspectors or completed a survey stated that they were being bullied, and appropriate information is available 6 of 13 Inspection Report: Lancashire County Council Fostering Services, 26 September 2008 to carers and young people on what action to take should this occur. Allegations against carers are investigated and there are appropriate systems in place to monitor this. The Local Authority Designated Officer (LADO) is available to provide information and guidance, and has no immediate concerns about the fostering service. Information is available for carers on what to do should a child be reported missing from home, and a protocol is in place with the police

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Protecting children from harm or neglect and helping them stay safe

authority. The panels are chaired by an experienced and qualified independent social work practitioner who has been in post since April 2008. Through her guidance the role of the panels has contributed significantly to the overall improvement within the service, and now ensures that good quality decisions are made with the over riding objective to promote and safeguard the welfare of children in foster care. Staff and managers have confidence in the role of panel and the decisions that they make. Not all panels have a full representative from, for example, education, an ex service user, or vice chair. The panel procedures are under review and are not fully implemented and the process for the appointing and checking of panel members is not robust, in that not all appropriate paper work is in place for all panel members. Although the overall standard of paper work and presentation to the panel has improved it is not always clear

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Helping children achieve well and enjoy what they do

The provision is satisfactory. There is an equality and diversity plan in place for the whole council, although not service specific and therefore limited impact on the fostering service and carers. Some information is provided to carers on different faiths and religions within the foster carer's handbook but this is not developed fully to include detailed information on caring for young people with specific needs arising out of their faith, culture, religion or disability. Training is identified in the training and development plan for carers working with children with disabilities, those who are from a minority ethnic community and attachment and identity. Access to leisure activities and the development of hobbies and interests is inconsistent. Although the arrangements for granting permission for young people to go on trips and residential events has been amended this is not fully implemented and it is not clear how children with specific talents interests and hobbies

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Helping children achieve well and enjoy what they do

can access additional funding. The service has appointed a head of a 'virtual school' who has begun to develop appropriate policies and procedures to engage with schools, young people and carers to support and promote the educational achievements of children. Carers support education and although overall levels of attainment is below average, some young people are doing very well at school and carers are working co-operatively with schools. Young people said that carers support them to do well at school and provide the equipment and information to do well. The process for obtaining computers for children is not clear and was causing dissatisfaction amongst carers and young people and was disadvantaging some young people, particularly those on Information Technology based courses. Personal Education Plans are in file, educational attainment is discussed at carer's supervision and statutory reviews. Additional

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Helping children achieve well and enjoy what they do

services for children can be accessed through the Education Looked after Children team (ELAC) who can provide specific support. The head of the virtual school is aware of the work which is still required to ensure that all children are fully supported and their educational achievement is assured. The service has a small short break service and a service level agreement with Barnardos to provide additional short breaks or day care. Under the Aim High agenda the authority is quite rightly reviewing the service to children with disabilities. The carers seen on this occasion were providing good service to children and their families. 7 of 13 Inspection Report: Lancashire County Council Fostering Services, 26 September 2008

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Helping children make a positive contribution

The provision is satisfactory. Carers are provided with limited information in the carers' handbook in respect of promoting contact and a contact policy is in place. Contact is discussed at statutory reviews and most young people are seeing the people that they want. There are some good examples seen of where carers are actively supporting contact and finding ways for this to be creative. However some carers are not as active, and had historically been allowed to make their own arrangements some of which is still evident in current practice. Some issues were raised during the inspection in respect of contact which were pro-actively dealt with. Not all carers had full and appropriate documentation regarding contact arrangements, for example a legal restriction of contact order. The statutory review process encourages young people to contribute with the use of appropriate leaflets and their views are discussed at the reviews. Although the number of Independent

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Helping children make a positive contribution

Reviewing Officers (IROs) have improved there still remains an insufficient number of them to ensure that all placements including those in IFAs are robustly monitored and children's views are taken into account, and that reviews are held at times suitable to all young people, i.e. not during the school day. There are a number of arrangements through the council to involve young people to develop the service. There is a strong Children's Right Service which is delivered by the Children's Society, which is known to carers and young people. Young people know how to make a complaint and information is available to them. However complaints made directly to staff have not always been addressed promptly, although matters raised directly through the inspection have now been addressed.

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Achieving economic wellbeing

The provision is satisfactory. Pathway plans are in place and set out clearly the needs of the young people concerned. However these documents which are based on the PIR also contain historic information, which means that they are not user friendly and could be distressing to young people if they are circulated. There is information provided in the handbook on how carers can develop the independent living skills of the young people placed and some good practice was seen. A number of young people have been placed with carers over a long period of time, and have been supported to do well and develop into mature young people. LCC currently pay below the Government recommended rates to carers and the system for payments of fees and allowances is confusing and inconsistently applied. This is the biggest concern for carers particularly on re-paying of monies when they have bought gifts, essential items and paid holiday expenses.

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Achieving economic wellbeing

However there is a plan in hand to amend this by April 2009 with further plans to implement a broader system in the following years. The voucher scheme in the short break service is seen to be outdated and antiquated.

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Organisation

The organisation is satisfactory. The Statement of Purpose and Children's Guide is currently being revised. However the documents provided for the inspection contain a range of appropriate information. There is clear evidence that there is good monitoring systems in place, which includes the auditing of files, recording of case planning decisions in supervision. The managers and staff are clear in what is expected of them and the Executive Director for Children's Services has led the improvement plan for the service, including personally auditing files. The Executive Director 8 of 13 Inspection Report: Lancashire County Council Fostering Services, 26 September 2008 and Head Of Children's Services are providing clear and strong leadership to the management of the service. In turn the service has in place managers who are committed to the overall improvement to the service, and have the ability and willingness to carry the significant changes

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Organisation

through. The service has been subject to a re-design earlier in the year, and it is clear that further work is required to ensure that staff and managers are appropriately sited to give the most appropriate service to young people and carers. There are inconsistent levels across the service of sufficient administrative staffing and organisation to ensure that fostering staff have an appropriate level of support and this matter has been recognised. Although some staffing difficulties remain in regards to localities the staff presented well, are competent and enthusiastic about their role. The service does not have a sufficient number of carers, however there is a recruitment strategy in place and plans in hand to develop this. Staff have undertaken training to increase their knowledge and skills when undertaking assessments and this has been enthusiastically received and was evidenced in the assessments read. The majority of carers

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Organisation

have been subject to re-assessment, and the amount of work undertaken in a relatively short space of time in respect of this work is testimony to the commitment of the staff to improve the quality of the service. Staff are well supported through training and developmental opportunities, regular supervision, team meetings and annual appraisals. There has been an overhaul of the policies and procedures and these are gradually being implemented. Staff are clear in what is expected of them, how and where decisions are made and the impact of those decisions. Staff had clearly been affected by the significant changes to the service, and many were powerful in their comments including 'This experience has been the most defining moment of my social work career'. Almost all carers are satisfied with the majority of the support they receive from staff and many cited particular members of staff or offices who they felt are very

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Organisation

supportive. The process for undertaking annual review of carers is subject to further review and all carers reviews are now up to date. Carers welcomed the new system and reported that they felt that they had been 'reviewed'. Visits to carers including unannounced visits are recorded on file and carers receive copies of supervision notes and visits. However carers are not always so complimentary about placing social workers and many gave examples of poor practice, which impacts on the service provided by carers. One carer said 'We are lucky at the moment all the social workers we have are good and so we have less need of support from the fostering service'. The service provides support groups but attendance at these vary and are subject to review and re-organisation. Of most concern is the way the service deals with complaints from carers. There is inconsistency within the service on the initial handling of complaints and then the

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Organisation

process of investigation and communication with carers. Matters which were raised during the inspection were dealt with effectively. The service has created a new training and development strategy which is known to carers but is as yet not fully implemented. The standard of record keeping and the order of the files for both carers and young people is impressive and all have been subject to review. However recording by carers is inconsistent and not all carers are aware of the policy and procedure. Some carers do not record any information, whilst some are recording all information about all young people in placement in the same book-for example a diary. This may cause difficulties if young people in later life want to read their files or diaries are required for a court process or other requests. The administrative records are clear and comprehensive but system for the PIR is restricting good practice and the storing of appropriate

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Organisation

information. There has been a review of the service to the Friends and Family carers who now receive the same level of support as other carers. In some circumstances as a result of the review some carers are receiving a far better level of service than before with additional services identified for them and the young people in place. 9 of 13 Inspection Report: Lancashire County Council Fostering Services, 26 September 2008

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Statutory requirements

This section sets out the actions, which must be taken so that the registered person meets the Care Standards Act 2000, The Fostering Services Regulations 2005 and the National Minimum Standards. The Registered Provider must comply with the given timescales.

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Due date Action Standard

1 January 2009 develop an appropriate placement agreement which complies with the Regulations and Schedule 6 of the Fostering Regulations (Regulation 34.3) 1 December 2008 ensure that all fostering panels have appointed a vice chair (Regulation 24 (4)).

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Recommendations

To improve the quality and standards of care further the registered person should take account of the following recommendation(s): • ensure that all carers have first aid training (12.5) • ensure that the processes for appointing staff are clear and that fostering managers are involved in all processes (NMS 15.2) • implement the policies and procedures for panels (NMS 30.1) • ensure that each panel membership meets the NMS (NMS 30.8 and 30.9) • revise the process for the appointing and checking of panel members (NMS 30.3) • develop further the information to carers on looking after children with specific needs arising out of their faith, culture, country of birth or disability. • ensure that it is made clear how carers can access additional funding to support young people with specific talents, interests and hobbies (NMS 7.7) • ensure that the placement agreement identifies where the financial responsibility lies for

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Recommendations

all school equipment costs (NMS 13.8) • ensure that all young people are allowed to maintain and develop appropriate family contact and that carers are encouraged to support this (NMS 10.1) • ensure that there are a sufficient number of Independent Reviewing officers to ensure that all statutory reviews are carried out at suitable times and that the placements of young people with Independent Fostering Agencies are monitored effectively (NMS 11.3) • ensure that complaints made by young people to the service are dealt with appropriately (NMS 11.5) • revise the pathway plans so that they do not contain historic information about young people which is no longer relevant (NMS 14.5) • review and implement the revised payment scheme to ensure that it is clear what covers the cost of caring for each child what a carer is expected to provide. (NMS 29.1) 10 of 13 Inspection Report: Lancashire County Council Fostering Services, 26 September 2008

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Recommendations

• ensure that staff are supported by appropriate and dedicated administrative support (NMS 16.11) • create an effective system to ensure that complaints made by carers are dealt with appropriately (NMS 22.8) • create and implement an effective system for carers on recording information about young people in place (NMS 24.8). 11 of 13 Inspection Report: Lancashire County Council Fostering Services, 26 September 2008

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The intended outcomes for these standards are:

• the fostering service promotes the health and development of children (NMS 12). Ofsted considers 12 the key standard to be inspected.

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The intended outcomes for these standards are:

• any persons carrying on or managing the service are suitable (NMS 3) • the fostering service provides suitable foster carers (NMS 6) • the service matches children to carers appropriately (NMS 8) • the fostering service protects each child or young person from abuse and neglect (NMS 9) • the people who work in or for the fostering service are suitable to work with children and young people (NMS 15) • fostering panels are organised efficiently and effectively (NMS 30) Ofsted considers 3, 6, 8, 9, 15 and 30 the key standards to be inspected.

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The intended outcomes for these standards are:

• the fostering service values diversity (NMS 7) • the fostering service promotes educational achievement (NMS 13) • when foster care is provided as a short-term break for a child, the arrangements recognise that the parents remain the main carers for the child (NMS 31) Ofsted considers 7, 13 and 31 the key standards to be inspected.

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The intended outcomes for these standards are:

• the fostering service promotes contact arrangements for the child or young person (NMS 10) • the fostering service promotes consultation (NMS 11) Ofsted considers 10 and 11 the key standards to be inspected.

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The intended outcomes for these standards are:

• the fostering service prepares young people for adulthood (NMS 14) • the fostering service pays carers an allowance and agreed expenses as specified (NMS 29) Ofsted considers none of the above to be key standards to be inspected.

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The intended outcomes for these standards are:

• there is a clear statement of the aims and objectives of the fostering service and the fostering service ensures that they meet those aims and objectives (NMS 1) • the fostering service is managed by those with the appropriate skills and experience (NMS 2) • the fostering service is monitored and controlled as specified (NMS 4) 12 of 13 Inspection Report: Lancashire County Council Fostering Services, 26 September 2008

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Annex A

• the fostering service is managed effectively and efficiently (NMS 5) • staff are organised and managed effectively (NMS 16) • the fostering service has an adequate number of sufficiently experienced and qualified staff (NMS 17) • the fostering service is a fair and competent employer (NMS 18) • there is a good quality training programme (NMS 19) • all staff are properly accountable and supported (NMS 20) • the fostering service has a clear strategy for working with and supporting carers (NMS 21) • foster carers are provided with supervision and support (NMS 22) • foster carers are appropriately trained (NMS 23) • case records for children are comprehensive (NMS 24) • the administrative records are maintained as required (NMS 25) • The premises used as offices by the fostering service are suitable for the purpose (NMS 26) • the fostering service is financially viable (NMS 27) • the fostering service has robust financial processes (NMS 28)

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Annex A

• local authority fostering services recognise the contribution made by family and friends as carers (NMS 32) Ofsted considers 1, 16, 17, 21, 24, 25 and 32 the key standards to be inspected. 13 of 13 Inspection Report: Lancashire County Council Fostering Services, 26 September 2008

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