Foreword

AFCA Priorities for Action in 2002–2003

Reporting on Progress

Aboriginal and Torres Strait Islander Care

Allegations of Abuse in Foster Care

Financial Conditions in Foster Care

Good Practice in Foster Care

Permanency and Long-term Stability in Foster Care

Relative Care

Support for Foster Carers

Training and Accreditation of Foster Carers

Supporting Strong Parenting in the Australian Foster Care Sector

The Costs of Caring: A Study of Appropriate Foster Care Payments for Stable and Adequate Out of Home Care in Australia

AFCA Contact List

Securing a Safe and Effective Foster Care System

Australian Foster Care Association

Priorities and Position Statements, 2002–2003

Securing a Safe and Effective Foster Care System

Continued...

SUPPORTING STRONG PARENTING IN THE AUSTRALIAN FOSTER CARE SECTOR

A study conducted by the Australian Foster Care Association and funded by the Commonwealth Department of Family and Community Services

The purpose of the study was to assess the support needs and provisions for foster carers and to address issues related the prevention of abuse within the foster care sector. The Report is the result of original Australian research, limited literature review, reports of discussions and interviews with foster carers, workers and administrations, and the conducting of a survey of foster carers across Australia. There were 812 responses to the survey, which represents approximately 10% of foster carers attached to both government and non-government agencies. This is a large enough sample to provide a statistical analysis of how foster carers feel across the nation.

Some of the survey results were:

• 42% of foster carers have been fostering for 1-5 years and 25% for 6-10 years.
• 38% of foster carers were aged between 45 ­ 54 years; 30% between 35-44; and 20% were over 55.
• Of the sample, 41% were employed as professionals, managers, administrators or para professionals, 22% had no breadwinners or were retired or pensioners, with the remainder covering a range of occupations.
• The importance of support to foster carers was highlighted by 84% who rated it as absolutely essential or very important. 41% said they got 'just enough support to get by on' and over 50% rated the quality of support as average (35%) very poor (12%) or extremely poor (4%). The support that foster carers felt they got came from their family and friends (55%) rather than from ÔofficialÕ sources.
• Introductory and initial training received a rating of extremely good or very good from over 70% of respondents. Subsequent training was rated slightly lower at 60%.
• 65% of respondents said they had a printed manual or guidebook. The 24-hour emergency help line was rated extremely good or very good by 35%, average by 20% and very poor or extremely poor by 14%.
• 72% of foster carers rated the information provided about the foster child being placed with them as average, very poor, or extremely poor.
• Foster carers agreed unanimously that the financial support offered to cover their expenses is not sufficient.
• Support for foster carers when an allegation of abuse or neglect is made against them emerged at one of the most contentious issues.
• 43% of foster carers said they knew of foster carers who have ceased fostering because of a lack of support at the time of an allegation.
• The top sources of support (over 70%) were family and friends, fellow foster carers and foster carer associations.
• Governments were seen by 40% as offering extremely poor support and Agencies were seen by 23% as offering very poor or extremely poor support.

Using these and other responses, the interviews and research, the research found the following areas to be ones that require attention to achieve improvements in the foster care sector as a whole and for foster carers in particular:

1.    National Approach on Foster Care

The foster care sector as a whole, would benefit from a nationally agreed position on foster care. A National Approach in Foster Care would need to address the following issues:

1. The provision of quality foster care for children.
2. Differentiation between foster care for children in voluntary or short term placements and children in long term or permanent placements.
3. Indigenous and ethnic placement principles.
4. Recognition of kinship and relative foster care.
5. The funding required for government and non-government agencies to provide a quality service for foster carers and the children they care for.
6. The roles of children and natural families in the provision of foster care.
7. The quality of the relationship between foster carers and workers.

2.    National and State Associations of Foster Carers

The pivotal role of foster carers is that of unpaid Volunteers/Carers. They are the ones who provide the 24 hours a day, 7 days a week, 365 days a year care for children who live apart from their parents as a result of abuse or neglect in their home. With over 90% of children in care being cared for by foster or kinship carers, it is essential that carers have a formal way of joining together for mutual support and to have a means of representing, and advocating for, carers and the children for whom they care.

3.    Working Together to Improve Community Support

As discussed in this report, foster care appears still to be filled with outdated stereotypic notions, which are an obstacle to constructive development of the sector. To change attitudes in the community at large is difficult at any time and for anyone. Yet is seems that until some of these century-old views are replaced, the image of foster care will continue to be viewed negatively and undervalued.

In addition to negative and stereotypic attitudes in the community, there appears to be negative and even unprofessional attitudes among some administrators, social workers, case managers and foster carers. There is a pressing need for the various stakeholders within the sector to work together in a more holistic and appreciative understanding of each otherÕs roles, needs, responsibilities and rights. Changes occurring in States and Territories at the present time, and the national focus on families, provide positive current opportunities to build upon.

4.    Recruitment, Training and Accreditation

The issues of recruitment, training, and accreditation are related to the expertise, morale and motivation of foster carers. They are issues that have been neglected for many years by this under-resourced sector. It is now time for these matters to be addressed. Foster, kinship and relative carers need adequate training. The stories told of children being placed with people who are not trained or who have not received specialist training, need to stop. Foster, relative and kinship carers also deserve to have their skills recognised. The fact that carers are volunteers should not be sufficient reason for them not to receive recognition and accreditation.

5.    Recording of Statistics

The foster care sector is greatly handicapped by the lack of statistical information. There are far too many unanswered and unanswerable questions in the sector as it currently exists. The result is that policies and procedures can be adopted without a firm factual basis. There is a need for a national policy on the collection, reporting and availability of statistical information including:

• the children in foster, relative and kinship care;
• foster carers including relative and kinship carers;
• indigenous and ethnic foster care;
• issues including allegations against foster carers; and
• details of placement numbers, breakdowns, etc.

6.    Financial support for Foster Carers

Foster carers are volunteers but they need to be trained, supported, and recompensed for the cost of the care they provide. As many of them will readily testify, foster caring is unlike many other forms of volunteering because it is an on-going 24 hour-a-day commitment. There is a fine line to be drawn between using the willing contribution of volunteers and exploiting them. There is a need for an agreement between Commonwealth and State/Territory Governments to ensure sufficient funds are available to meet the needs of the children.

7.    Standards of Care, Allegations and Support

Allegations of abuse and the handling of those allegations by all parties is a particularly sensitive, painful and urgent area of need within foster care. It, along with the quality of relationships between carers and workers, were the two Ôstand outÕ areas of concern in the consultations and discussions held during this study.

There are undoubted urgent needs in this area, for foster carer, relative and kinship carers encompassing the following:

• rights of carers under investigation;
• independence of investigators;
• rights of carers for review and appeal;
• support and advocacy for carers under investigation;
• availability of accurate and full information for carers;
• agreed due process for the handling of allegations;
• enforcement of due process;
• legal issues;
• confidentiality; and
• treatment of carers and records when allegations have not been substantiated.

8.    Standards for Foster Care

There has been much talk within the sector about standards, and separate attempts have been and are being made in different jurisdictions to develop standards. While this is a proper right of individual States and Territories to develop such standards, it would be in the best interests of Australian children if national standards were to be developed. There may doubtless be different methods of implementing those standards in different States and Territories, but the sector as a whole needs national baseline benchmarks for performance. There is a precedent in the national baseline out-of-home care standards.

The adoption of some standard terminology and an agreed structure and process for performance monitoring in the sector against the agreed national standards would also make a very significant contribution to the sector as a whole.

9.    Program Management

Deliberate steps must be taken to address systems abuse through the establishment of standards and performance indicators, and also through more specific program management changes so that those who are vulnerable in the system no longer suffer at itÕs hands. A national program evaluation of foster care provision should be undertaken.

This would have as its primary concern accountability to the Parliament, and through it to the community, of resources donated to foster care in this country.

10. Research and Development

Almost every chapter in this report has touched on issues that could benefit from research. What is always needed, however, for any research to take place is funding. The provision of funding will not only stimulate research but can also direct it to the most important areas.

11. A Role for the Commonwealth Government

The recommendations listed in this report require a cooperative approach of the Commonwealth, State and Territory Governments and community organisations working together for significant improvements to occur in the foster care sector.

The Commonwealth and State Ministers Advisory Council is the important body to ensure that national action is agreed to and implemented. However, input from community organisations is critical and a means of achieving this needs to be developed.

Summary of Recommendations

Recommendation 1

A National approach on foster care including Indigenous and kinship care be developed as a cooperative venture by the Commonwealth and State/Territory Governments and peak community organisations directly involved in foster care.

Recommendation 2

Commonwealth and State/Territory Governments work with and involve the State and National Associations of foster carers, and help fund their support at a sufficient level to enable them to support carers and provide consultative forum for ongoing policy consultation.

Recommendation 3

All governments and non-government organisations commit to working together to present the community with a contemporary view of foster care to increase community recognition and support.

Recommendation 4

The Commonwealth and State/Territories establish a policy on statistical recording of information pertinent to foster care, including the national collection of statistics related to allegations of abuse, and initiate a national collection process.

Recommendation 5

The Commonwealth and States/Territory Governments initiate a national approach for the recruitment, training and accreditation of foster carers including those providing kinship care.

Recommendation 6

The Commonwealth and State/Territory Governments address the issues of providing full costs of foster care so that the combination of State and Commonwealth support is sufficient to fully recompense foster carers experience in providing appropriate care for children and young people.

Recommendation 7

Along with standards advocating respite care for foster carers, conditions be altered so that provision for fully supported respite care is available to carers and is included in all case planning.

Recommendation 8

The State/Territory governments develop ways of supporting foster carers to reduce instances of allegations of abuse in care and develop processes for handling allegations against foster carers. This should be encouraged and facilitated by the Commonwealth government because of its interest in the longer term outcomes of children, and in a manner similar to the leadership role adopted by the Commonwealth when addressing long-term homeless, juvenile justice, and carer issues.

Recommendation9

A national approach to the handling of allegations of abuse be developed so that the inequities of the current systems can be removed and notified foster carers receive recognition and support until such time as the allegations are substantiated.

Recommendation 10

A program evaluation of foster care provision be undertaken at both Commonwealth and State/Territory levels to provide accountability to the Australian community of the resources committed to foster care.

Recommendation 11

A joint government representative body, such as the Commonwealth and State Ministers Advisory Council (CSMAC), be given responsibility for preparing and implementing a set of standards to apply specifically to foster care in place of the current national baseline out-of-home care standards.

RECOMMENDATION 12

As part of any overall review of foster carer in Australia, the possible benefits of the Alberta classification system be examined for potential application in Australia.

RECOMMENDATION 13

Revision of the structures, processes and practices concerning allegations of abuse in care in Australia, be revised so that they reflect standards and practice that are nearer to the good practice standards pertaining in Alberta, Canada.

RECOMMENDATION 14

Governments commission and/or fund appropriate research into foster care as a means of further development of foster care in Australia.

RECOMMENDATION 15

The Commonwealth and State Ministers Advisory Council (CSMAC) host a round table for representatives of peak national bodies predominantly involved in foster care, along with senior Commonwealth and State/Territory representatives, to discuss the recommendations of this report and to plan for action to occur.

THE COSTS OF CARING: A STUDY OF APPROPRIATE
FOSTER CARE PAYMENTS FOR STABLE AND ADEQUATE
OUT OF HOME CARE IN AUSTRALIA

A study conducted by Marilyn McHugh of the Social Policy Research Centre, University of New South Wales for the Child and Family Welfare Association of Australia, the Australian Foster Care Association and the Association of ChildrenÕs Welfare Agencies

Introduction

Since the mid-eighties there has been growing disquiet among a number of major foster care organisations in relation to certain aspects of fostering. One aspect of concern is the low level of standard subsidy paid by States to foster carers to meet the costs of children in care. In addition there is concern that unless payments to carers are increased there will be great difficulty not only in recruiting and maintaining carers in fostering but in expanding the available number of carers.

The Child and Family Welfare Association of Australia (CAFWAA), the Australian Foster Care Association (AFCA) and the Association of ChildrenÕs Welfare Agencies (ACWA) commissioned the Social Policy Research Centre (SPRC) at the University of New South Wales (UNSW) to examine the adequacy and effectiveness of foster care payments in Australia. Funding for the project was received from the Ian Potter Foundation; a number of non-government agencies; the SPRC; and the Department of Families, Queensland. Foster carers and foster care associations provided in-kind support.

Data from the Australian Institute of Health and Welfare (AIHW) for the year ending 30 June 2000, indicated that the numbers of children and young people placed in out of home care services in Australia was 16 923. Most children were in foster care (7 870), relative/kinship care (6 051), or other home based arrangements (153). Indigenous children are significantly over-represented in the child welfare system and more specifically in out-of-home care. The rate of Indigenous children aged 0-17 years in out-of-home care (1999-2000) at 18.3 per 1000, is significantly higher than for non-Indigenous children at 3.6 per thousand.

Findings

The findings from the survey confirmed that the low levels of standard subsidy, paid by States to foster carers, were not meeting the costs of children in care. The main issues included:

• inadequacy of the standard subsidy to meet basic costs of care;
• difficulties for carers in accessing, arranging and obtaining reimbursement for additional services;
• common occurrence of Ôtop-upsÕ to the standard subsidy by agencies to assist carers with meeting costs meant to be covered by the standard subsidy. Lengthy delays and debates with departmental workers in relation to obtaining reimbursement for these and other costs;
• high levels of stress experienced by both carers and agencies in attempting to meet the needs of children, exacerbated by inconsistent departmental policy, in relation to the reimbursement of costs to carers;
• carer reliance on public health services to meet the needs of children in care resulting in long delays (e.g. 6-12 months) in obtaining specialist services with some services being unavailable;
• no regular annual adjustment to the standard subsidy to reflect rises in the costs of living;
• high turnover of people caring for children with substantial numbers of carers coming in and also leaving fostering over a 12 month period;
• lack of acknowledgement, respect and support for carers from many workers;
• the nature of foster care being not only arduous but also at times hazardous for both carers and their families;
• the importance of allowances and reimbursement of expenses for the maintenance of foster care placements;
• for carers in rural and regional areas, there was an intensification of issues and concerns relating to accessing and arranging additional services; and in meeting costs associated with transporting children either on a day to day basis, or in relation to access/contact visits with childrenÕs birth families; and
• inequities in the subsidies and reimbursement for kinship carers.

Carers highlighted areas in current budgets where costs specific to fostering are not reflected. These included:

• housing ­ significant costs for general wear and tear and damage to household goods;
• energy ­ more frequent use of water for laundry, heated water, pool pumps, tank water, electrical appliances, lighting, air-conditioning, heating, televisions, stereos etc;
• food ­ over-eating, excessive consumption of food or drinks, higher wastage of foods, provision of additional food during visits with parents;
• clothing and footwear ­ one of the most problematic areas: children coming with nothing or poor quality, ill fitting, loss and replacement of items is constant;
• household goods and services ­ wear and tear on appliances, furniture, fittings, linen, bedding;
• health ­ need for assessment and access to specialists, costs of over the counter medicines;
• transport ­ often specific to geographical locations, need for a car every day, need for large cars;
• leisure ­ pocket money, purchase of gifts; and
• personal care ­ use of disposables and pull-ups in young children who wet and soil frequently, overuse of toiletries such as medical shampoo etc.

The research finds that the estimates of the costs of children in foster care are on average 52% higher than the costs of children not in care.

The study shows that NO State or Territory is, overall, paying an adequate reimbursement to foster carers at the standard subsidy level, compared to the estimated costs of foster children.

The research also confirms that there is a high level of discontent amongst carers about reimbursement of costs in all states and territories.

Note: These figures are indicative only and must be read with regard to the impact of contingency payments

Table 1 presents an overview of the standard subsidy payments for all States and Territories compared to the estimated basic, everyday costs specific to fostering as determined by this study. In providing the standard subsidy, States and Territories generally expect this to cover basic living costs associated with housing, food, power and gas, transport to and from daily activities, basic recreation, standard ongoing school requirements and the bulk of ongoing clothing. Some States expect other items to be paid for out of the standard subsidy, for example the NSW standard subsidy is expected to cover health, education and also childcare.

Both current and recommended standard subsidy payments do not cover additional child related costs that are needed to fully provide for the child or young person. These include things such as medicines, disability aids, school functions and camps, tutoring, ongoing sporting and recreational activities, dental, medical and therapeutic work, etc. Currently, in some circumstances, States and Territories may make these additional payments when a cost is incurred. These are known as contingency payments. However, it should be noted that most of these are discretionary payments, and the report found payment to be both arbitrary and slow. (See Table 2 below.)

Recommendations

1. Consideration be given by the Commonwealth, States and Territories for a national framework for payments that would address issues of adequacy and equity for all foster carers across Australia and better reflect the real costs of caring for children and young people in care.
2. All States and Territories review their level of standard subsidy, including higher payments for specified categories of need, paid to carers and increase levels to reflect the direct costs of fostering. The review process should include consultation with non-government agencies and carer associations.
3. All States and Territories cover a similar set of budget items in the standard subsidy to meet the extra costs to a family of a child in care.
4. Regardless of the type of care order a child is under, all carers to be paid the same rate of weekly subsidy.
5. The issue of additional allowances, (sections 7.5 and 7.9 of main report) that is Ôone-offÕ payments for initial clothing and footwear, and allowances for gifts (for childrenÕs birthdays/Christmas) be reviewed to ensure that costs are adequately met in a consistent and systematic way.
6. The additional allowances for initial clothing and footwear requirements and for gifts should be mandatory payments for all children in medium to long-term care.
7. States and Territories maintain age-related payment schedules for standard subsidy payments. That age-related payments more closely reflect the real costs of fostering for children in particular age groups, in particular, younger children.
8. All States and Territories systematically update the level of weekly subsidy paid to carers to correspond with regular changes in the CPI.
9. Unless a placement is of a temporary nature, that is, children are aware they will be returning to their birth family in a relatively short period of time, all children and young people in care should be offered specialist counselling to assist them to recover from the impact of any family violence, abuse or neglect they may have previously experienced, and to assist them to adjust to their changed circumstances. The offer of counselling should not be at the discretion of a worker but be viewed as the right of the child or young person in care. All costs for specialist counselling to be met by the Department.
10. In the case of carers of pre-school aged children, good quality child care should be made available on a regular basis, and paid for by the Department at no cost to the carer.
11. All carers be provided with policy documentation in relation to their entitlement to discretionary and mandatory payments, and amounts for the children in their care. That all States and Territories consider a review of their administrative procedures to ensure that carers, and/or services, are reimbursed within a reasonable period of time, such as within 14 days, after carers/services have lodged a claim. That administrative Ôceiling and threshold payment levelsÕ be removed from reimbursement systems to ensure equity for all carers and adequacy to meet childrenÕs costs for specialist services.
12. All States place a high priority on funding access to suitable respite care on a regular basis for all carers. On the grounds of equity alone, no carers should be penalised by any reduction in their subsidy payments for either weekend respite or when the child is on short periodic visits to their birth family.
13. Agencies and departments who administer foster care systems find a prompt and appropriate policy response to the significant problem of insurance coverage for carers. That all States ensure that carers have full indemnity against all damage caused by foster children to either their property or the property of others.
14. On the grounds of equity, the costs for all over-the-counter medications purchased for children in care be reimbursed regardless of the amounts.
15. The appropriate Commonwealth, State and Territory Departments explore the feasibility of legislative changes to enable carers to include foster children in long term care in a carerÕs private health fund.
16. Where it is deemed appropriate and necessary to meet the pressing health needs of children, private health insurance in a childÕs name should be provided by the agency/department and the costs of premiums paid by the department.
17. A temporary Departmental (or Agency) Medicare card be issued by workers to all carers when a child is placed or until other arrangements for a card in the childÕs own name can be made.
18. As part of the assessment process, where medical details or the background of children coming into care are unknown, they are seen by a general practitioner and any relevant health or medical information relayed to the carer as soon as practical.
19. All costs of travel using a carerÕs personal car should be reimbursed by the department/agency at the rate used to reimburse workers in the public sector in the particular State or Territory where the travel takes place.
20. The cost incurred by carers for overnight stops, for example accommodation and food, on access visits be fully reimbursed. Carers should be able to choose to either have their costs reimbursed by tendering receipts or to take the per diem rate paid to public servants in the particular State or Territory where the travel takes place.
21. All carers should be entitled to receive financial assistance with the purchase of a larger vehicle, if due to their caring role, for example caring for sibling groups or with several children in care, they are required to purchase a larger vehicle.
22. All carers using larger vehicles should be able to apply for a loading on their subsidy payment to cover the increased costs of transport.
23. Carers in remote and regional areas receive a loading on the standard subsidy payment to assist with extra costs attributable to distance.
24. All (Indigenous and non-Indigenous) kinship carers receive the same level of standard subsides paid to other carers.
25. All (Indigenous and non-Indigenous) kinship carers receive the same level of support and access to services for children in care as other carers.
26. Training and support groups be made available for all Indigenous and non-Indigenous kinship carers.

If you have any queries, please contact AFCA on AFCA@bigpond.com or write to the Secretary or your State/Territory contact.