Sweet 16? One Year On Is Life Any Sweeter?

Sweet 16? One Year On Is Life Any Sweeter? Kathleen Marshall Scotland s Commissioner for Children and Young People Analysis of Local Authority Survey Responses: 24 March 2009

About this survey On 25 March 2008, I laid before the Scottish Parliament a report entitled Sweet 16? The age of leaving care in Scotland. This survey of local authorities was conducted to find out whether and how the recommendations of that report had been taken forward by local authorities. The essence of the responses is included in a follow up report Sweet 16? Is it any sweeter? which was laid before the Scottish Parliament on 25 March 2009. Numbers may differ slightly between that report and this analysis due to the late submission of some responses which have been fully taken into account in this analysis but not in the published report. Some interpretation of the responses was involved in allocating them to particular headings in this analysis. The full responses of individual local authorities are available on request. These might help local workers to compare their understanding of the situation with the local authority response. Sweet 16? LA Survey Analysis p 2 of 22 Version 25/03/2009

CONTENTS 1. Local Authority Survey... 4 2. Questions about promoting responsibilities... 4 2.1 Promoting Corporate Parenting... 4 2.2 Engagement with Housing Services... 6 2.3 Residential School Placements... 8 3. Questions about Moving Forward... 11 3.1 Promoting 18 rather than 16 as the age for leaving care...11 3.2 Appropriate accommodation...14 3.3 Being made Homeless...17 3.4 Coming back into care for short periods of support...20 4. Gathering Statistics... 23 4.1 Bed & Breakfast...23 4.2 Hostels for the homeless...25 Sweet 16? LA Survey Analysis p 3 of 22 Version 25/03/2009

1. Local Authority Survey A questionnaire was issued to local authorities on 22 January 2009, with a response date of 23 February. A reminder was sent to those who had not replied with a second deadline of 13 March. 3 responses were received after the second deadline and two of these were able to be incorporated in the report laid before Parliament. The response from Fife was too late for the report but is included in this analysis, meaning that it now reflects the responses from every local authority in Scotland. 2. Questions about promoting responsibilities 2.1 Promoting Corporate Parenting There appears to have been a lot of activity around the corporate parenting theme. The following table shows particular initiatives referred to. The fact that something is not referred to does not necessarily mean that the authority concerned has not done this, as they were asked a general question and may have taken different approaches to identifying what to put in their responses. So this represents the minimum of activity in each column rather than the full picture. The question asked was: Have you engaged with councillors to promote their responsibilities as corporate parents? (Recommendation 3) If so, how? Local Authority Policy Report Event Action Group 1 Aberdeen City 2 Aberdeenshire CYP involved Champions for individual LAC 3 Angus 4 Argyll and Bute 5 Comhairle Nan Eilean Siar 6 Clackmannanshire 7 Dumfries and Galloway 8 Dundee 9 East Ayrshire 10 East 11 East Lothian 12 East Renfrewshire 13 Edinburgh Sweet 16? LA Survey Analysis p 4 of 22 Version 25/03/2009

Local Authority Policy Report Event Action Group 14 Falkirk 15 Fife 16 Glasgow 17 Highland CYP involved Champions for individual LAC 18 Inverclyde 19 Midlothian 20 Moray 21 North Ayrshire 22 North Lanarkshire 23 Orkney Islands 24 Perth and Kinross 25 Renfrewshire 26 Scottish Borders 27 Shetland Islands 28 South Ayrshire 29 South Lanarkshire 30 Stirling 31 West 32 West Lothian Total 18 8 17 12 9 7 18 of the local authorities referred specifically or by strong implication to a corporate parenting policy. Eight referred to a report to a committee or to members. 17 referred to corporate parenting events for elected members. 12 had set up groups to take the issue forward in their area. Nine referred to events or groups that involved children and young people. Seven were developing some sort of Children s Champion role for officials or elected members, in which senior officials were given specific responsibility for tracking the progress of individual looked after children. (Two others - Glasgow and Highland - had more general Champion models.) 2.2 Engagement with Housing Services The question asked was: Have you engaged with housing services to emphasise their role as part of the corporate parent (Recommendation 12)? if so, how? Sweet 16? LA Survey Analysis p 5 of 22 Version 25/03/2009

Responses referred to a variety of approaches to address this issue: Local Authority Strategy Protocol Forum Working relationships 1 Aberdeen City 2 Aberdeenshire 3 Angus 4 Argyll and Bute Event Stock transfer issues 5 Comhairle Nan Eilean Siar 6 Clackmannanshire 7 Dumfries and Galloway 8 Dundee 9 East Ayrshire 10 East 11 East Lothian 12 East Renfrewshire 13 Edinburgh 14 Falkirk 15 Fife 16 Glasgow 17 Highland 18 Inverclyde 19 Midlothian 20 Moray 21 North Ayrshire 22 North Lanarkshire 23 Orkney Islands 24 Perth and Kinross 25 Renfrewshire Sweet 16? LA Survey Analysis p 6 of 22 Version 25/03/2009

Local Authority Strategy Protocol Forum Working relationships 26 Scottish Borders Event Stock transfer issues 27 Shetland Islands 28 South Ayrshire 29 South Lanarkshire 30 Stirling 31 West 32 West Lothian Total 9 9 16 13 7 3 Responses on relationships with housing services were mixed. There was much reference to protocols, strategies and meetings. There were a few very positive references, many more neutral ones, and some that indicated that there was still some way to go on this. Edinburgh reports some positive developments but indicates that further work is required. North Ayrshire reports that relationships have improved substantially over the past few years. South Lanarkshire reports a very positive relationship with many Housing and Technical Services. Fife said a Housing officer was attached and collocated with the Leaving Care Team and provided invaluable advice and guidance to workers in the team. This worker also completes a housing assessment on all young people referred to the Leaving Care Team and can help access emergency accommodation for formerly looked after young people. Inverclyde described issues relating to the stock transfer as problematic. CnES said this situation meant the situation was not straight forward. HHP does not accept that it has a corporate parent role that takes precedence over its responsibilities towards other client groups. Glasgow refers to a successful protocol with GHA but also hopes for stronger links with them once the results of a recent survey are analysed. 2.3 Residential School Placements The question was: Have you engaged with education colleagues about funding of children in residential schools (Recommendation 10)? If so, how? Local Authority Joint budget/ funding Not always appropriate post school leaving age Reviewing out of area placements Integrated education/ social work service Joint decisions Protocol 1 Aberdeen City 2 Aberdeenshire 3 Angus 4 Argyll and Bute 5 Comhairle Nan Sweet 16? LA Survey Analysis p 7 of 22 Version 25/03/2009

Local Authority Joint budget/ funding Not always appropriate post school leaving age Reviewing out of area placements Integrated education/ social work service Joint decisions Protocol Eilean Siar (forthcoming) 6 Clackmannanshire 7 Dumfries and Galloway? 8 Dundee 9 East Ayrshire 10 East 11 East Lothian 12 East Renfrewshire 13 Edinburgh? 14 Falkirk 15 Fife 16 Glasgow 17 Highland 18 Inverclyde 19 Midlothian 20 Moray 21 North Ayrshire 22 North Lanarkshire? 23 Orkney Islands 24 Perth and Kinross 25 Renfrewshire 26 Scottish Borders 27 Shetland Islands 28 South Ayrshire 29 South Lanarkshire 30 Stirling Sweet 16? LA Survey Analysis p 8 of 22 Version 25/03/2009

Local Authority Joint budget/ funding Not always appropriate post school leaving age Reviewing out of area placements Integrated education/ social work service Joint decisions Protocol 31 West 32 West Lothian Total 14 1 3 4 16 2 Angus Council says decisions are made with respect to the best interests of the child rather than a blanket policy that children leave accommodation at 16. Clackmannanshire says young people will stay so long as it is in their best interests. Dumfries and Galloway indicate a willingness to maintain young people in residential schools beyond 16 if appropriate. East refer to the posts of Principal Teacher LAAC within Education, and Care Plan Reviewing Officer within Social Work as contributions towards good communication between the two services. Their involvement in the review process ensures that decisions are based on the young person s educational and social needs and not solely on their age. Edinburgh has its own residential school for boys. Current policy is to keep young people in Edinburgh unless there are exceptional circumstances. Requests for extensions to out-ofauthority placements post school leaving date are considered if there is a clear rationale and if this enables a smooth transition to a supportive placement. Falkirk says a recent review noted the joint responsibilities beyond statutory school leaving date and adds that the work is ongoing. Fife said issues about inter-service co-operation would be progresses through the Corporate Parenting Group. The Inverclyde budget is joint, but funding for residential placements is managed by social work who will maintain young people in placement beyond their school leaving age where this is assessed as sin their best interests. Nevertheless there is reference to joint decision making. Midlothian has funded residential school places up until 18 where this is in the interests of the young person and their needs cannot be met in Midlothian. North Ayrshire education and social services meet every two weeks to consider all applications for residential school placements including request for the young person to remain in education beyond their 16 th birthday. South Ayrshire s joint funding group has considered the situation of young people over 16 and has a proven history of support in residential schools beyond 16 if appropriate. Stirling say they have funded transitional support from the residential school. West sat young people can remain in their placement beyond 16 where it is an agreed part of their care plan. Sweet 16? LA Survey Analysis p 9 of 22 Version 25/03/2009

3. Questions about Moving Forward 3.1 Promoting 18 rather than 16 as the age for leaving care The question was: What steps are you taking with social care staff to promote 18 rather than 16 as the age for leaving care (Recommendations 3, 4, 5)? Local Authority There is no expectation about leaving at 16 Encouragement Guidance Training Procedures Resources 1 Aberdeen City 2 Aberdeenshire 3 Angus 4 Argyll and Bute 5 Comhairle Nan Eilean Siar 6 Clackmannanshire 7 Dumfries and Galloway 8 Dundee 9 East Ayrshire 10 East 11 East Lothian 12 East Renfrewshire 13 Edinburgh 14 Falkirk 15 Fife 16 Glasgow 17 Highland 18 Inverclyde 19 Midlothian 20 Moray 21 North Ayrshire 22 North Lanarkshire Sweet 16? LA Survey Analysis p 10 of 22 Version 25/03/2009

Local Authority There is no expectation about leaving at 16 Encouragement Guidance Training Procedures Resources 23 Orkney Islands 24 Perth and Kinross 25 Renfrewshire 26 Scottish Borders 27 Shetland Islands 28 South Ayrshire 29 South Lanarkshire 30 Stirling 31 West 32 West Lothian Total 15 7 5 6 9 7 Aberdeen City says a recent initiative (ART project) did not support this recommendation because departure is sometimes dependent on choice and how well the young person engages, as opposed to need. Argyll & Bute and Renfrewshire both said there was no pressure to leave at 16 but they were nevertheless discussing the issue within their authority. CnES points to the mixed messages given by the fact that applications for housing must be considered from anyone aged 16+. They believe this sends out a message that 16 is an acceptable age to leave home and is difficult to fit with the recommendation that youngsters in care should not be encouraged to move on until 18. East have varied the registration of one of their children s units to enable the provision of accommodation with support post 18 to meet the needs of one young person. Edinburgh claims significant progress in changing the culture of leaving at 16, largely due to the development of an Attachment Promoting model within residential units where the significance of relationships made between young people and residential staff is recognised. Fife has changed the remit of one of the residential children s homes to concentrate on young people aged 16 and over, preparing them for various forms of independent living. Midlothian Council has notified the care Commission to request that the registration of all residential units is altered to an upper age limit of 18. Moray Council have provided additional resources for 6 young people who were unable to remain in residential provision out of area post school leaving age. Sweet 16? LA Survey Analysis p 11 of 22 Version 25/03/2009

Orkney refers to a recent initiative to provide significant numbers of supported accommodation places for 17 25 year olds. It is intended to complement this by recruitment of a specialist 16+ social worker to provide intensive social work assistance to vulnerable young people. Scottish Borders recognise the need to provide more housing options post 16, including supported accommodation and supported lodgings/ carers. 3.2 Appropriate accommodation The question was: What steps are you taking to provide better/more appropriate accommodation for care leavers (Recommendation 7)? Local Authority Semiindependent units Support for YP Flats Supported tenancies Supported lodgings Processes/ other 1 Aberdeen City? 2 Aberdeenshire Review of options 3 Angus under consideration 4 Argyll and Bute planned planned 5 Comhairle Nan Eilean Siar aware of the need 6 Clackmannanshire pilot June 2009 7 Dumfries and Galloway? 8 Dundee if required 9 East Ayrshire planned 10 East being explored 11 East Lothian 12 East Renfrewshire 2 new scatter flats 11 new for all including care leavers 13 Edinburgh 25 places scoping exercise 14 Falkirk for vulnerable women - under consideration Sweet 16? LA Survey Analysis p 12 of 22 Version 25/03/2009

Local Authority Semiindependent units Support for YP Flats Supported tenancies Supported lodgings Processes/ other 15 Fife 16 Glasgow Audit & 17 Highland planned planned planned 18 Inverclyde in strategy recruiting more Protocol 19 Midlothian new 5-bed with priority for care leavers 8 new flats with priority for care leavers in Edinburgh 20 Moray strategy being developed 21 North Ayrshire Protocol with Housing 22 North Lanarkshire Discussions and strategy about temporary accommodation 23 Orkney Islands for homeless and care leavers 24 Perth and Kinross planned 25 Renfrewshire planned 26 Scottish Borders 27 Shetland Islands 28 South Ayrshire 29 South Lanarkshire 30 Stirling for young parents. More planned for Sweet 16? LA Survey Analysis p 13 of 22 Version 25/03/2009

Local Authority Semiindependent units Support for YP Flats Supported tenancies Supported lodgings Processes/ other all 31 West joint funding Social work and education for some work 32 West Lothian Total 11 7 5 12 14 14 CnES reports that the chalets criticised in Sweet 16? Are no longer used for care leavers, but there are significant difficulties in obtaining alternative accommodation in Stornoway. A youth housing strategy is being developed. East Lothian says there are pledges from the corporate parenting event to develop specialist accommodation for young people who cannot manage mainstream accommodation. North Ayrshire note that the lack of additional funding means that options are limited are the protocol wit Housing will have to foster creativity and innovation. 3.3 Being made Homeless The question was: What steps are you taking to implement the recommendation that young people should not have to be made homeless in order to be prioritised for housing allocation (Recommendation 13)? Local Authority Do not have to be homeless No longer have to be homeless Will soon no longer have to be homeless Raised with housing Being reviewed Other 1 Aberdeen City 2 Aberdeenshire 3 Angus 4 Argyll and Bute 5 Comhairle Nan Eilean Siar 6 Clackmannanshire 7 Dumfries and Galloway 8 Dundee Stock transfer HHP considering 9 East Ayrshire Plan being developed Sweet 16? LA Survey Analysis p 14 of 22 Version 25/03/2009

Local Authority Do not have to be homeless No longer have to be homeless Will soon no longer have to be homeless Raised with housing Being reviewed Other 10 East Existing mechanism to prioritise 11 East Lothian 12 East Renfrewshire 13 Edinburgh some progress but further work required 14 Falkirk 15 Fife Work is ongoing to give priority without having to be homeless 16 Glasgow Managed through implementation of SoBP 17 Highland 18 Inverclyde A recognised anomaly complicated by stock transfer 19 Midlothian Care leaver does not have to present at council housing office as homeless 20 Moray 21 North Ayrshire 22 North Lanarkshire 23 Orkney Islands Sweet 16? LA Survey Analysis p 15 of 22 Version 25/03/2009

Local Authority Do not have to be homeless No longer have to be homeless Will soon no longer have to be homeless Raised with housing Being reviewed Other 24 Perth and Kinross Creative developments in the Homeless Strategy 25 Renfrewshire a last resort 26 Scottish Borders 27 Shetland Islands 28 South Ayrshire we use homeless legislation positively 29 South Lanarkshire 30 Stirling 31 West positively discouraged 32 West Lothian Total 3 3 3 3 12 3.4 Coming back into care for short periods of support The question was: What steps are you taking to facilitate young people coming back into care for short periods of support (recommendation 16)? Local Authority In individual care plans Under consideration Happens sometimes Crisis accommodation available/ planned Difficult resource issues Other 1 Aberdeen City 2 Aberdeenshire 3 Angus 4 Argyll and Bute 5 Comhairle Nan Eilean Siar 6 Clackmannanshire several young Sweet 16? LA Survey Analysis p 16 of 22 Version 25/03/2009

Local Authority In individual care plans Under consideration Happens sometimes Crisis accommodation available/ planned Difficult resource issues Other people over the years will continue 7 Dumfries and Galloway 8 Dundee 9 East Ayrshire 10 East Because can stay till 18, there are registration limitations 11 East Lothian 12 East Renfrewshire Try to keep beds for a few weeks 13 Edinburgh sofa beds Alison Unit a good example 14 Falkirk Less likely now as support available in Aftercare service 15 Fife 16 Glasgow 17 Highland 18 Inverclyde 19 Midlothian 20 Moray 21 North Ayrshire 22 North Lanarkshire Move to locality Sweet 16? LA Survey Analysis p 17 of 22 Version 25/03/2009

Local Authority In individual care plans Under consideration Happens sometimes Crisis accommodation available/ planned Difficult resource issues Other based services providing throughcare so all options open 23 Orkney Islands 24 Perth and Kinross new for all 25 Renfrewshire 26 Scottish Borders 27 Shetland Islands 28 South Ayrshire Not needed due to good planning and support 29 South Lanarkshire No action because not feasible 30 Stirling 31 West Place held open for a time 32 West Lothian Focus on preventing the need Total 2 0 21 5 9 Orkney says it happens often and is encouraged. 4. Gathering Statistics 4.1 Bed & Breakfast The question was: How many care leavers in the current financial year have been discharged into bed and breakfast establishments (including those that provide informal support) (Recommendation 14)? Sweet 16? LA Survey Analysis p 18 of 22 Version 25/03/2009

Local Authority Number Comment 1 Aberdeen City 4 All female (2 from residential units and 2 from foster placements). 2 Aberdeenshire 2 3 Angus 0 4 Argyll and Bute 4 On Supported Bed and Breakfast in 2008 5 Comhairle Nan Eilean Siar 0 6 Clackmannanshire 0 7 Dumfries and Galloway 4 Out of 22 care leavers 8 Dundee 0 9 East Ayrshire 0 10 East 0 11 East Lothian 1 12 East Renfrewshire 2 One was discharged from care into temporary homeless accommodation and was subsequently offered B&B after being placed in a hostel for the homeless. A second care leaver was offered B&B in response to a crisis situation but was later moved. 13 Edinburgh 2 Short term pending identification and accessing of suitable accommodation 14 Falkirk 2 15 Fife? Information will be available by end of April 2009. No knowledge of young people being directly moved from care to bed and breakfast, although aware of at least 9 young care leavers during the year who have regularly used B&B accommodation 16 Glasgow? No figures for current year would need a survey of case files. Of the 297 care leavers to end of 2008, some of the 8 homeless accommodation (see next question) may have been to B&B. 17 Highland 2 former care leavers Not discharged into B&B but may move at a later date due to changes in circumstances. In the 2 cases, the accommodation was safe and had kitchen facilities. 18 Inverclyde 0 19 Midlothian 4 Sweet 16? LA Survey Analysis p 19 of 22 Version 25/03/2009

Local Authority Number Comment 20 Moray 1 1 young person for one week while awaiting a tenancy to become available. 21 North Ayrshire 0 22 North Lanarkshire 0 Says We do not use bed and Breakfast establishments 23 Orkney Islands 0 Housing Services has long recognised that bed and breakfast accommodation is not appropriate for care leavers. 24 Perth and Kinross 0 25 Renfrewshire 1 For one night due to a crisis situation in a children s unit. 26 Scottish Borders 2 27 Shetland Islands 0 28 South Ayrshire 0 29 South Lanarkshire 1 30 Stirling 0 This has been a marked improvement from previous years and the result of stronger transitional planning. 31 West 0 32 West Lothian 1 Total 33 4.2 Hostels for the homeless The question was: How many care leavers in the current financial year have been discharged into hostels for the homeless (Recommendation 15)? Local Authority Number Comment 1 Aberdeen City 0 2 Aberdeenshire 0 3 Angus 0 However, 6 YP have been discharged into homeless accommodation: 3 YP into a Homeless Unit where they ve had their own room as well as access to communal facilities; 3 YP into non-secure tenancies on a temporary basis. 4 Argyll and Bute 0 In compliance with our current procedures and practice that our objective is that no care leaver will be placed in a bed and breakfast or hostel placement. 5 Comhairle Nan Eilean Siar 0 Sweet 16? LA Survey Analysis p 20 of 22 Version 25/03/2009

Local Authority Number Comment 6 Clackmannanshire 0 7 Dumfries and Galloway 8 8 out of 22 (This includes those local resources which are supported such as Hope Place/ Reston) (Benyellary/ Annabank). 8 Dundee 0 9 East Ayrshire 0 10 East 0 11 East Lothian 1 12 East Renfrewshire 2 Prior to opening the Young People s Supported Living Unit in January 2009. 13 Edinburgh 3 Short term, pending the identification and accessing of suitable accommodation. 14 Falkirk 4 Into a supported accommodation facility specifically for young people in this area. 15 Fife? Information will be available by the end of April 2009s 16 Glasgow 1? Says None but comment re B&B refers to 8 discharged to homeless accommodation and 1 to hostel accommodation. 17 Highland 0 18 Inverclyde 0 19 Midlothian 3 20 Moray 1 As being the safest and most protective local option available. 21 North Ayrshire 1 This was the choice of the young person and was agreed as the best option, given the individual circumstances. 22 North Lanarkshire 0 Says We do not discharge young people from care into homeless accommodation 23 Orkney Islands 0 24 Perth and Kinross 1 This figure does not include 3 young people who entered a throughcare residential (Housing Support) accommodation in a planned and constructive way. However, in order to access this provision they had to be designated homeless. 25 Renfrewshire 4 Sweet 16? LA Survey Analysis p 21 of 22 Version 25/03/2009

Local Authority Number Comment 26 Scottish Borders 0 27 Shetland Islands 0 28 South Ayrshire 0 29 South Lanarkshire 0 30 Stirling 0 We do not use hostels for the homeless. 31 West 0 32 West Lothian 3 Total 32 Sweet 16? LA Survey Analysis p 22 of 22 Version 25/03/2009